EMERGENCY MANAGEMENT INSTITUTE
Independent Study
IS139
March, 2003
EXERCISE
DESIGN
FEMA
TABLE OF CONTENTS
Page
Course Overview.................................................................................................................1
Unit 1: Introduction to Exercise Design
Introduction ..................................................................................................................1.1
Unit 1 Objectives ..........................................................................................................1.1
Why Exercise? .............................................................................................................1.1
Regulatory Requirements.............................................................................................1.6
Functions......................................................................................................................1.7
Activity: Needs Assessment ........................................................................................1.9
Summary and Transition ............................................................................................1.14
For More Information..................................................................................................1.14
Knowledge Check ......................................................................................................1.15
Unit 2: Comprehensive Exercise Program
Introduction ..................................................................................................................2.1
Unit 2 Objectives ..........................................................................................................2.1
Progressive Exercising .................................................................................................2.1
Who Participates? ........................................................................................................2.3
What Activities Are Included?.......................................................................................2.5
Comparing the Five Activities .....................................................................................2.17
Building an Exercise Program ....................................................................................2.20
Activity: Develop a Comprehensive Exercise Program Plan ......................................2.27
Summary and Transition ............................................................................................2.31
For More Information..................................................................................................2.31
Knowledge Check ......................................................................................................2.32
Unit 3: The Exercise Process
Introduction ..................................................................................................................3.1
Unit 3 Objectives ..........................................................................................................3.1
The Big Picture.............................................................................................................3.2
Accomplishment 1: Establishing the Base ...................................................................3.5
Accomplishment 2: Exercise Development..................................................................3.6
Accomplishment 3: Exercise Conduct .........................................................................3.8
Accomplishment 4: Exercise Evaluation and Critique ..................................................3.9
Accomplishment 5: Exercise Followup ......................................................................3.10
Reviewing the Current Plan ........................................................................................3.11
Assessing Capability to Conduct an Exercise.............................................................3.12
Addressing Costs and Liabilities.................................................................................3.13
Activity: Getting Ready for Exercise Design ..............................................................3.14
Gaining Support .........................................................................................................3.18
Assembling a Design Team........................................................................................3.21
Activity: Identify Design Team Members....................................................................3.29
Exercise Documents...................................................................................................3.30
Summary and Transition ............................................................................................3.33
For More Information..................................................................................................3.33
Knowledge Check ......................................................................................................3.34
Exercise Design
Page i
TABLE OF CONTENTS
Page
Unit 4: Exercise Design Steps
Introduction ..................................................................................................................4.1
Unit 4 Objective ............................................................................................................4.1
Step 1: Assess Needs .................................................................................................4.2
Step 2: Define the Scope.............................................................................................4.4
Step 3: Write a Statement of Purpose .........................................................................4.7
Activity: Define Exercise Scope and Purpose ............................................................4.10
Step 4: Define Objectives ..........................................................................................4.14
Activity: Analyze an Objective....................................................................................4.17
Activity: Good or Poor Objectives ..............................................................................4.21
Activity: Develop Objectives ......................................................................................4.24
Step 5: Compose a Narrative ....................................................................................4.25
Activity: Outline a Narrative .......................................................................................4.29
Step 6: Write Major and Detailed Events...................................................................4.30
Step 7: List Expected Actions ....................................................................................4.33
Activity: Write Major and Detailed Events ..................................................................4.36
Step 8: Prepare Messages ........................................................................................4.38
Activity: Compose a Message ...................................................................................4.44
Pulling It Together: The Master Scenario of Events List ............................................4.45
Alternatives to Self-Developed Exercises ...................................................................4.46
Summary and Transition ............................................................................................4.47
For More Information..................................................................................................4.47
Knowledge Check ......................................................................................................4.48
Unit 5: The Tabletop Exercise
Introduction ..................................................................................................................5.1
Unit 5 Objectives ..........................................................................................................5.1
Characteristics of the Tabletop Exercise ......................................................................5.1
How a Tabletop Works .................................................................................................5.3
Facilitating a Tabletop Exercise....................................................................................5.4
Activity: Your Ideas for Facilitating a Tabletop.............................................................5.8
Designing a Tabletop Exercise .....................................................................................5.9
Activity: Develop Problem Statements.......................................................................5.13
Activity: Develop a Tabletop Exercise Message ........................................................5.17
Summary and Transition ............................................................................................5.20
For More Information..................................................................................................5.20
Knowledge Check ......................................................................................................5.21
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Exercise Design
Page
Unit 6: The Functional Exercise
Introduction ..................................................................................................................6.1
Unit 6 Objectives ..........................................................................................................6.1
What Is a Functional Exercise? ....................................................................................6.2
Activity: Compare Tabletop and Functional Exercises .................................................6.4
Participant Roles ..........................................................................................................6.6
How a Functional Exercise Works ..............................................................................6.11
Facilities and Materials ...............................................................................................6.18
Designing a Functional Exercise ................................................................................6.22
Activity: Identify Functional Exercise Responsibilities ................................................6.25
Summary and Transition ............................................................................................6.27
For More Information..................................................................................................6.27
Knowledge Check ......................................................................................................6.28
Unit 7: The Full-Scale Exercise
Introduction ..................................................................................................................7.1
Unit 7 Objectives ..........................................................................................................7.1
What Is a Full-Scale Exercise?.....................................................................................7.2
Activity: Know Your Regulatory Requirements ............................................................7.3
Activity: Compare Functional and Full-Scale Exercises ...............................................7.6
Full-Scale Exercise Roles.............................................................................................7.8
How the Full-Scale Exercise Works..............................................................................7.9
Exercise Locations .....................................................................................................7.11
Designing the Full-Scale Exercise ..............................................................................7.12
Special Considerations...............................................................................................7.14
Activity: Plan Ahead for the Full-Scale Exercise ........................................................7.22
Summary and Transition ............................................................................................7.24
For More Information..................................................................................................7.24
Knowledge Check ......................................................................................................7.25
Exercise Design
Page iii
TABLE OF CONTENTS
Page
Unit 8: Exercise Evaluation
Introduction ..................................................................................................................8.1
Unit 8 Objectives ..........................................................................................................8.1
Integrating Evaluation Throughout Development..........................................................8.2
Why Evaluate the Exercise?.........................................................................................8.3
The Evaluation Team ...................................................................................................8.4
Evaluation Methodology ...............................................................................................8.7
Evaluator Checklist.....................................................................................................8.12
Narrative Summary ....................................................................................................8.13
Key Event Response Form.........................................................................................8.15
Problem Log...............................................................................................................8.16
Postexercise Meetings ...............................................................................................8.17
Exercise Debriefing Log .............................................................................................8.19
Exercise Critique Form ...............................................................................................8.20
After Action Report .....................................................................................................8.22
Implementing Change ................................................................................................8.24
Activity: Plan the Evaluation ......................................................................................8.25
Summary and Transition ............................................................................................8.27
For More Information..................................................................................................8.27
Knowledge Check ......................................................................................................8.28
Unit 9: Exercise Enhancements
Introduction ..................................................................................................................9.1
Unit 9 Objectives ..........................................................................................................9.1
Why Use Enhancements? ............................................................................................9.2
Communications Equipment.........................................................................................9.3
Visuals..........................................................................................................................9.4
People and Props.........................................................................................................9.7
Enhancement Resources .............................................................................................9.8
Enhancement Logistics ................................................................................................9.9
Activity: Enhance a Scenario .....................................................................................9.10
Activity: Plan Enhancements for Your Exercise .........................................................9.13
Summary and Transition ............................................................................................9.15
For More Information..................................................................................................9.15
Knowledge Check ......................................................................................................9.16
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Exercise Design
Page
Unit 10: Designing a Functional Exercise
Introduction ................................................................................................................10.1
Unit 10 Objective ........................................................................................................10.2
Select Your Exercise ..................................................................................................10.2
Step 1: Assess Needs ...............................................................................................10.3
Step 2: Define the Scope...........................................................................................10.8
Step 3: Write a Statement of Purpose .....................................................................10.11
Step 4: Define the Objectives ..................................................................................10.12
Step 5: Compose a Narrative ..................................................................................10.13
Step 6: Write Major and Detailed Events.................................................................10.16
Step 7: List Expected Actions ..................................................................................10.16
Step 8: Prepare Messages ......................................................................................10.18
Constructing the Master Scenario of Events List ......................................................10.23
Planning the Exercise Evaluation .............................................................................10.25
Planning the Exercise Enhancements ......................................................................10.27
Optional Activity: Exercise Design Documents ........................................................10.29
Summary and Transition ..........................................................................................10.30
Unit 11: Course Summary
Introduction ................................................................................................................11.1
Reasons to Exercise...................................................................................................11.1
Comprehensive Exercise Programs ...........................................................................11.1
The Exercise Process.................................................................................................11.3
Exercise Design Steps ...............................................................................................11.4
The Tabletop Exercise................................................................................................11.5
The Functional Exercise .............................................................................................11.6
The Full-Scale Exercise..............................................................................................11.7
Exercise Evaluation ....................................................................................................11.9
Exercise Enhancements...........................................................................................11.10
Next Steps................................................................................................................11.11
Appendix A: Job Aids
Appendix B: Acronym List
Appendix C: Exercise Tool Box
Exercise Design
Page v
Course Overview
COURSE
OVERVIEW
About This Course
Emergencies happen. Emergencies can be limited in scope or they can
reach disaster proportions, sweeping through an entire community or
multiple communities. Being prepared to respond to and recover from
emergencies is everyone’s challenge. Whether your organization is a
government agency tasked with a particular response role, a volunteer
agency that responds to the community’s needs, or a private sector entity
that may be faced with an emergency situation, you have an important
role in that preparation.
As an outcome of your community’s or organization’s emergency
planning process, plans should be in place that specify how you prepare
for emergencies, how you will respond if an emergency occurs, how you
will mitigate the potential effects of emergencies, and how you will
recover. Practice is an important aspect of the preparation process.
Experience and data show that exercises are a practical, efficient, and
cost-effective way for organizations in the government, nonprofit, and
private sectors to prepare for emergency response and recovery.
This course is based on one important premise: Emergency exercises
are worth the effort. Exercises identify areas that are proficient and those
that need improvement. Lessons learned from exercises can be used to
revise operational plans and provide a basis for training to improve
proficiency in executing those plans.
This course is designed to introduce you to the fundamentals of exercise
design and to prepare you to design and conduct a small functional
exercise for your organization. It addresses:
Exercise Design
The value of conducting exercises.
The components of a comprehensive exercise program.
The exercise development processdevelopment tasks,
organization of the design team, exercise documentation, and the
steps in designing an exercise.
Page 1
COURSE OVERVIEW
About This Course (Continued)
This course will cover the purpose, characteristics, and requirements of
three main types of exercises:
Tabletop exercise
Functional exercise
Full-scale exercise
In addition this course will cover:
Exercise evaluation.
Exercise enhancements.
Designing a functional exercise.
This course is one of several courses in exercise design offered through
the Emergency Management Institute (EMI). To get information about
other courses, check online at www.fema.gov/emi.
FEMA’s Independent Study Program
The Federal Emergency Management Agency’s (FEMA’s) Independent
Study Program is one of the delivery channels that EMI uses to provide
training to the general public and specific audiences. This course is part
of FEMA’s Independent Study Program. In addition to this course, the
Independent Study Program includes other courses in the Professional
Development Series (PDS), as well as courses in floodplain
management, radiological emergency management, the role of the
emergency manager, hazardous materials, disaster assistance, the role
of the Emergency Operations Center (EOC), and an orientation to
community disaster exercises.
FEMA’s independent study courses are available at no charge and
include a final examination. You may apply individually or through group
enrollment. When enrolling for a course, you must include your name,
mailing address, social security number, and the title of the course in
which you wish to enroll.
Page 2
Exercise Design
COURSE OVERVIEW
FEMA’s Independent Study Program (Continued)
If you need assistance with enrollment, or if you have questions about
how to enroll, contact the Independent Study Program Administrative
Office at:
FEMA Independent Study Program
Administrative Office
Emergency Management Institute
16825 South Seton Avenue
Emmitsburg, MD 21727
(301) 447-1200
Information about FEMA’s Independent Study Program also is available
on the Internet at:
http://training.fema.gov/EMIWeb/IS.
Each request will be reviewed and directed to the appropriate course
manager or program office for assistance.
Course Prerequisites
Exercise Design has no prerequisites.
Final Examination
This course includes a written final examination, which you must
complete and return to FEMA’s Independent Study Office for scoring. To
obtain credit for taking this course, you must successfully complete this
examination with a score of 75 percent or above. You may take the final
examination as many times as necessary.
When you have completed all of the units, you may complete the final
examination online or use the answer sheet (if one is provided in your
course packet). If you choose to use the answer sheet, you must return
it to the FEMA Independent Study Office at the address listed on the
previous page. EMI will score your test and notify you of the results.
Course Completion
The course completion deadline for all FEMA Independent Study courses
is one year from the date of enrollment. The date of enrollment is the
date that the EMI Independent Study Office will use for completion of all
required course work, including the final examination. If you do not
complete this course, including the final examination, within that
timeframe, your enrollment will be terminated.
Exercise Design
Page 3
COURSE OVERVIEW
How to Take This Course
This Independent Study course is designed so that you can complete it
on your own at your own pace. Take a break after each unit, and give
yourself time to think about the material, particularly how it relates to your
work in the exercise design function of emergency management.
On the other hand, this course may be done in a group setting guided by
an instructor. This Independent Study can also be used in such groups.
Exercise Design has 11 units. Each of these units is described below.
Page 4
Unit 1, Introduction to Exercise Design, explores the benefits
organizations derive from exercising and leads you through a
preliminary needs assessment.
Unit 2, Comprehensive Exercise Program, provides an overview of
five main types of exercise activities that make up a comprehensive
exercise program.
Unit 3, The Exercise Process, presents an overview of the process
used to plan and implement a single exercise within a comprehensive
program. It also introduces four key design documents. In this unit,
you will take some preliminary “groundwork” steps, including a
resource self-assessment and identifying potential design team
members.
Unit 4, Exercise Design Steps, takes you through an eight-step
process for designing an exercise and provides a variety of job aids
to use in applying that process. You will practice each step in an
abbreviated fashion as you progress through the unit.
Unit 5, The Tabletop Exercise, takes a closer look at the tabletop
exercise, including key characteristics, best uses, guidelines for
facilitation, and special design considerations.
Unit 6, The Functional Exercise, examines the functional exercise
more closelyagain focusing on key characteristics, best uses,
guidelines for control, and special design considerations.
Unit 7, The Full-Scale Exercise, takes a similar look at full-scale
exercises and how they differ from the other types of exercises.
Unit 8, Exercise Evaluation, briefly discusses key aspects of
evaluation methodology and the evaluation tasks that must take
place before, during, and after an exercise.
Exercise Design
COURSE OVERVIEW
How to Take This Course (Continued)
Unit 9, Exercise Enhancements, presents ideas for enhancing an
exercise through visuals, equipment, props, and people.
Unit 10, Designing a Functional Exercise, walks you through
applying the eight design stepsusing the provided job aidsin
developing a simple functional exercise.
Unit 11, Course Summary, prepares you for the final exam by
presenting a brief review of the key points covered in the course.
Activities
This course will involve you actively as a learner by including activities
that highlight basic concepts. These activities emphasize different
learning points, so be sure to complete all of them. Compare your
answers to the answers provided following each activity. If your answers
are correct, continue on with the material. If any of your answers is
incorrect, go back and review the material before continuing.
Knowledge Checks
To help you know when to proceed to the next unit, Units 1 through 10
are followed by a Knowledge Check that asks you to answer questions
that pertain the unit content. Answers are provided following each
Knowledge Check. When you finish each Knowledge Check, compare
you answers to those provided, and review the parts of the text that you
do not understand. It would be to your benefit to be sure that you have
mastered the current unit before proceeding to the next unit.
Exercise Design Tool Box
A Tool Box is also included with the course materials. The Exercise
Design Tool Box contains a variety of exercise examples and templates
to supplement the instruction. The course materials will instruct you
when to use the Tool Box. The Tool Box can be accessed at
http://training.fema.gov/EMIWeb/IS/is139lst.asp.
Exercise Design
Page 5
COURSE OVERVIEW
How to Take This Course (Continued)
Job Aids
Throughout the course, you will find job aids designed to supplement the
text. You can use the job aids during the course, and you will find them
useful later, after you have completed the course. Copies of all job aids
are assembled in Appendix A, for easy reference.
Appendixes
At the back of this course are appendixes that include, in addition to the
job aids, an acronym list.
Equipment Requirements
To complete this course, you will need the following equipment:
A computer with the following or greater capability:
•
•
•
•
•
•
Pentium processor
Windows 95+ or NT
32 megabytes of RAM
SVGA monitor, displaying 16-bit color, 800 x 600 resolution
Microsoft or Microsoft-compatible mouse or other pointing device
CD-ROM Drive
Access to the internet is optional but will enable you to acquire additional
relevant information.
Page 6
Exercise Design
COURSE OVERVIEW
How to Take This Course (Continued)
Sample Learning Schedule
Complete this course at your own pace. You should be able to finish the
entire courseincluding pretest, units, knowledge checks, and final
examinationin approximately 10 hours. The following learning
schedule is only an example, intended to show relative times devoted to
each unit.
Unit
Unit 1: Introduction to Exercise Design
Unit 2: Comprehensive Exercise Program
Unit 3: The Exercise Process
Unit 4: Exercise Design Steps
Unit 5: The Tabletop Exercise
Unit 6: The Functional Exercise
Unit 7: The Full-Scale Exercise
Unit 8: Exercise Evaluation
Unit 9: Exercise Enhancements
Unit 10: Designing a Functional Exercise
Unit 11: Course Summary
Exercise Design
Suggested Time
20 minutes
1 hour
1 hour
2 hours
40 minutes
40 minutes
40 minutes
40 minutes
40 minutes
2 hours
10 minutes
Page 7
Unit 1: Introduction to
Exercise Design
UNIT 1
INTRODUCTION TO
EXERCISE DESIGN
Introduction
An exercise is a focused practice activity that places the participants in a
simulated situation requiring them to function in the capacity that would
be expected of them in a real event. Its purpose is to promote
preparedness by testing policies and plans and training personnel. In
this unit, you will explore some of the benefits that organizations derive
from exercising.
Unit 1 Objectives
After completing this unit, you should be able to:
Explain the value of exercises to improve the four phases of
comprehensive emergency management.
Identify the major reasons to conduct exercises.
Why Exercise?
Exercises are conducted to evaluate an organization’s capability to
execute one or more portions of its response plan or contingency plan.
Many successful responses to emergencies over the years have
demonstrated that exercising pays huge dividends when an emergency
occurs.
Exercise Design
Page 1.1
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Why Exercise? (Continued)
Sioux City, 1989
The 1989 plane crash in Sioux City, Iowa, provided a clear demonstration
of the value of exercises. In July of that year, United Airlines Flight 232
crashed in flames after a failed emergency landing attempt. Although
109 lives were lost in this terrible disaster, 186 passengers survived. How
were so many saved? Their survival was due mainly to three factors:
Response of the flight crew before the crash
Trained rescue units waiting on the ground
Centralized communications among all response agencies
These factors were present because of training, and the high level of
training was no coincidence. Years before the crash, a Disaster Services
Center was established. Representatives from 40 local agencies met
regularly to review emergency procedures and plan realistic exercises.
Two years before the crash, the community conducted a full-scale
exercise based on a commercial plane crash. This simulation revealed
several problems, including confusion in communications and inadequate
numbers of ambulances and other equipment at the scene. An afterexercise plan was developed to address these problems.
The day after the crash of United Flight 232, the Assistant Fire Chief said,
“We made mistakes [in the simulation]. The mistakes we made then did
not materialize yesterday.”
Page 1.2
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Why Exercise? (Continued)
Other Emergencies
Other emergencies and disasters before and since the 1989 crash also
have demonstrated the importance of exercising.
In 1989, FEMA coordinated a full-scale response exercise in
Sacramento, Californiajust two months before the Loma Prieta
earthquake struck Northern California. The exercise was credited
with improving the response to that disaster by both California and
the Federal government.
The After-Action Report following the 1995 bombing of the Alfred P.
Murrah Federal Building in Oklahoma City made the following
recommendation regarding problems that were identified in
integrating the response efforts of multiple agencies:
“Planning, training, and exercising are the only feasible recommendations. If an integrated emergency management system is to be
utilized and effective in future disasters, all levels of government must
be on the same page of the book. Effective coordination cannot be
achieved during the chaos following any disaster. Relationships must
be established, plans written and tested, and procedures agreed
upon. Regardless of what our particular role is, our mission is the
same… ‘to provide effective response and recovery through
coordinated logistics, communications, and information support
systems.’”
Exercise Design
Page 1.3
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Why Exercise? (Continued)
In 2000, Urban Search and Rescue (US&R) Task Forces participated
in two major exercises. One was an earthquake-based scenario
staged at Ames/Moffett Airfield in California. The other took
advantage of the planned demolition of a sports arena in Denver,
Colorado, by running a building collapse scenario. Of the latter
exercise, a Denver Fire Department captain said, “We’re preparing
for the event we hope never happens.”
Ironically, that was exactly the case. In 2001, some of the same
US&R Task Forces that participated in these exercises were sent to
New York City to search for victims after the terrorist attack that
resulted in the collapse of the World Trade Center towers.
Many communities across the nation have had similar experiences that
show the value of previous exercise training. Research has shown that
people generally respond to an emergency in the way that they have
trained. It only makes sense for government, volunteer, and private
organizations to exercise their plans and procedures so that they are
better prepared to respond to and recover from an emergency.
Page 1.4
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Why Exercise? (Continued)
Reasons to Exercise
The goal in exercise design is to establish a comprehensive exercise
programone based on a long-term, carefully constructed plan. In a
comprehensive program, exercises build upon one another to meet
specific operational goals. The aim is to provide competence in all
emergency functions.
There are two main benefits of an exercise program:
Individual training: Exercising enables people to practice their roles
and gain experience in those roles.
System improvement: Exercising improves the organization’s
system for managing emergencies.
These benefits arise not just from exercising, but from evaluating the
exercise and acting upon the recommendations. An exercise has value
only when it leads to improvement.
To summarize, there are a number of reasons to perform exercises.
Through exercises, organizations can:
Test and evaluate plans, policies, and procedures.
Reveal planning weaknesses.
Reveal gaps in resources.
Improve organizational coordination and communications.
Clarify roles and responsibilities.
Train personnel in roles and responsibilities.
Improve individual performance.
Gain program recognition and support of officials.
Satisfy regulatory requirements.
The focus of an exercise should always be on locating and eliminating
problems before an actual emergency occurs. Corrective actions are an
important part of exercise design, evaluation, and followup.
Exercise Design
Page 1.5
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Regulatory Requirements
Because the human and monetary costs of emergencies and disasters
are so high, governments, agencies, and many corporate entities and
other governing bodies have mandated preparedness training and
exercising. Several examples of mandated exercises are listed below.
Page 1.6
State and local governments receiving Federal funds may have to
comply with certain exercise requirements. FEMA’s requirements
change periodically, but the program is normally structured around a
four-year cycle.
Nuclear Power Plants must exercise their plans yearly, conducting a
full-scale exercise every two years. This exercise is evaluated by the
Nuclear Regulatory Commission (NRC).
Agencies or facilities falling under the coverage of the Superfund
Amendment Reauthorization Act of 1986 (SARA) Title III (e.g., local
emergency planning committees; facilities where chemicals are
produced, used, or stored) must conduct a yearly exercise and
evaluate their hazardous materials response and recovery plan.
Airports, hospitals, and other healthcare facilities must conduct a fullscale exercise once every 2 years to maintain their certification or
license to operate.
Many employers are required by the Occupational Safety and Health
Administration (OSHA) to develop an emergency action plan. OSHA
recommends that such plans be exercised at least annually.
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Functions
In planning exercises, the emphasis is on functions rather than on types
of emergencies, because preparedness in those functions is common to
all emergencies. Functions are actions or operations required in
emergency response or recovery.
FEMA defines 13 functions in its Emergency Management Exercise
Reporting System:
Exercise Design
Alert Notification (Emergency Response)
Warning (Public)
Communications
Coordination and Control
Emergency Public Information
Damage Assessment
Health and Medical
Individual/Family Assistance
Public Safety
Public Works/Engineering
Transportation
Resource Management
Continuity of Government
Page 1.7
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Functions (Continued)
If your organization is a private or volunteer organization, you may find it
practical to exercise a somewhat different or more limited set of functions.
Each of the functions listed above has a set of subfunctions related to it,
and your group may focus on some of those. For example, your
emergency response focus may relate to efforts such as:
The management and distribution of donations.
The logistics of providing needed resources.
The temporary conversion of a manufacturing process to provide
emergency supplies.
How to coordinate with other organizations to provide mass care.
How your employees respond to an internal emergency.
The variations are, of course, endless. However your entity is organized,
the point is that your exercise program should identify the applicable
functions and emphasize testing the operational procedures within those
functionsregardless of the type of emergency.
Page 1.8
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Activity: Needs Assessment
Activity
Below is a job aid to help you assess your organization’s exercise needs.
Use this tool to analyze where you may wish to focus your organization’s
exercise design efforts. In completing this needs assessment, you may
wish to consult such resources as planning documents, demographic or
corporate data, maps, and training records. (Note: This assessment
form also appears as Job Aid 1 in Appendix A.)
1.
Hazards
List the various hazards in your community or organization. What risks are you most likely
to face? You can use the following checklist as a starting point. Note: If your community
has already conducted a hazard analysis, that is the best resource.
Exercise Design
Airplane crash
Dam failure
Drought
Epidemic (biological attack)
Earthquake
Fire/Firestorm
Flood
Hazardous material spill/release
Hostage/Shooting
Hurricane
Landslide/Mudslide
Mass fatality incident
Radiological release
Sustained power failure
Terrorism
Tornado
Train derailment
Tsunami
Volcanic eruption
Wildfire
Winter storm
Workplace violence
Other ______________________
Other ______________________
Other ______________________
Other ______________________
Page 1.9
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Activity: Needs Assessment (Continued)
2.
Secondary Hazards
What secondary effects from those hazards are likely to impact your organization?
Communication system breakdown
Power outages
Transportation blockages
Business interruptions
Mass evacuations/displaced population
Overwhelmed medical/mortuary services
Other ________________________
Other ________________________
Other ________________________
Other ________________________
Other ________________________
3.
Hazard Priority
What are the highest priority hazards? Consider such factors as:
Frequency of occurrence.
Relative likelihood of occurrence.
Magnitude and intensity.
Location (affecting critical areas or infrastructure).
Spatial extent.
Speed of onset and availability of warning.
Potential severity of consequences to people, critical facilities, community functions,
and property.
Potential cascading events (e.g., damage to chemical processing plant, dam failure).
#1 Priority hazard:
#2 Priority hazard:
#3 Priority hazard:
Page 1.10
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Activity: Needs Assessment (Continued)
4.
Area
What geographic area(s) or facility location(s) is(are) most vulnerable to the high priority
hazards?
5.
Plans and Procedures
What plans and proceduresemergency response plan, contingency plan, operational
plan, standard operating procedures (SOPs) will guide your organization’s response to
an emergency?
6.
Functions
What emergency management functions are most in need of rehearsal? (e.g., What
functions have not been exercised recently? Where have difficulties occurred in the
past?) You can use the following checklist as a starting point.
Exercise Design
Alert Notification
(Emergency Response)
Warning (Public)
Communications
Coordination and Control
Emergency Public
Information (EPI)
Damage Assessment
Health and Medical
Individual/Family Assistance
Public Safety
Public Works/Engineering
Transportation
Resource Management
Continuity of Government or Operations
Other ___________________________
Other ___________________________
Other ___________________________
Page 1.11
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Activity: Needs Assessment (Continued)
7.
Participants
Who (agencies, departments, operational units, personnel) needs to participate in an
exercise? For example:
8.
Have any entities updated their plans and procedures?
Have any changed policies or staff?
Who is designated for emergency management responsibility in your plans and
procedures?
With whom does your organization need to coordinate in an emergency?
What do your regulatory requirements call for?
What personnel can you reasonably expect to devote to developing an exercise?
Program Areas
Mark the status of your emergency program in these and other areas to identify those
most in need of exercising.
New
Updated
Exercised
Used in
Emergency
N/A
Emergency Plan
Plan Annex(es)
Standard Operating Procedures
Resource List
Maps, Displays
Reporting Requirements
Notification Procedures
Mutual Aid Pacts
Policy-Making Officials
Coordinating Personnel
Operations Staff
Volunteer Organizations
EOC/Command Center
Communication Facility
Page 1.12
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Activity: Needs Assessment (Continued)
New
Updated
Exercised
Used in
Emergency
N/A
Warning Systems
Utility Emergency Preparedness
Industrial Emergency Preparedness
Damage Assessment Techniques
Other:
9.
Past Exercises
If your organization has participated in exercises before, what did you learn from them,
and what do the results indicate about future exercise needs? For example, consider the
following questions:
Who participated in the exercise, and who did not?
To what extent were the exercise objectives achieved?
What lessons were learned?
What problems were revealed, and what is needed to resolve them?
What improvements were made following past exercises, and have they been tested?
Exercise Design
Page 1.13
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Summary and Transition
This unit provided an overview of the benefits organizations derive from
exercising. Unit 2 discusses the elements of a comprehensive exercise
program and the progressive activities that make up a comprehensive
program.
Reference
Library
For More Information
FEMA Preparedness, Training, and Exercises, Exercise FAQs:
www.fema.gov/pte/faq.htm.
Environmental Protection Agency’s (EPA) Preparedness for
Response Exercise Program:
www.epa.gov/superfund/programs/er/training/prep/prepexer.htm.
U.S. Department of Justice (DOJ), Office for Domestic Preparedness,
Exercises:
www.ojp.usdoj.gov/odp/exercises/state.htm.
Oak Ridge Associated Universities (in conjunction with U.S.
Department of Energy (DOE)), Emergency Management Laboratory,
What Would You Do If It Happened to You?:
www.orau.gov/eml/exercise.htm.
Occupational Safety and Health Administration, Emergency
Preparedness and Response:
www.osha.gov/SLTC/smallbusiness/sec10.html.
Page 1.14
Exercise Design
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Check
Knowledge Check
Carefully read each question and all of the possible answers before selecting the most
appropriate response for each test item. Circle the letter corresponding to the answer you have
chosen.
1. Research has shown that:
a. Exercises are the best way to teach employees new skills.
b. Extended lectures are an effective alternative to exercises.
c. When possible, it is more effective to use real (rather than simulated) emergencies to
test response procedures.
d. People usually respond to an emergency in the way that they have trained.
2. Through exercising, organizations can reveal planning weaknesses and gaps in resources.
a. True
b. False
3. A good reason to exercise is to reduce the need for organizational coordination and
communication.
a. True
b. False
4. The focus of an exercise should be on eliminating problems before an actual emergency
occurs.
a. True
b. False
5. An exercise has value only when it leads to improvement.
a. True
b. False
6. In planning exercises, the main emphasis should be on the organization’s:
a.
b.
c.
d.
Vulnerability to natural hazards.
Vulnerability to manmade hazards (e.g., terrorism).
Ability to effectively carry out response and recovery functions.
Ability to respond to specific types of emergencies.
Exercise Design
Page 1.15
UNIT 1: INTRODUCTION TO EXERCISE DESIGN
Answers
Knowledge Check (Continued)
1.
2.
3.
4.
5.
6.
Page 1.16
d
a
b
a
a
c
Exercise Design
Unit 2: Comprehensive
Exercise Program
UNIT 2
COMPREHENSIVE
EXERCISE
PROGRAM
Introduction
In any discussion of emergency preparedness, the emphasis is on a
comprehensive exercise program, made up of progressively complex
exercises, each one building on the previous one, until the exercises are
as close to reality as possible. This unit provides an overview of five
main types of exercise activities that make up a comprehensive exercise
program.
Unit 2 Objectives
After completing this unit, you should be able to:
Identify the basic components of a comprehensive exercise program.
Explain the importance of designing a comprehensive and
progressive exercise program to meet the needs of your organization
or community.
Progressive Exercising
A progressive program has several important characteristics:
Exercise Design
The exercise program involves the efforts and participation of various
entitieswhether departments, organizations, or agencies. Through
the involvement of multiple entities, the program allows the involved
organizations to test, not only their implementation of emergency
management procedures, but their coordination with each other in
the process.
The program is carefully planned to achieve identified goals.
It is made up of a series of increasingly complex exercises.
Each successive exercise builds upon the previous one until mastery
is achieved.
Page 2.1
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Progressive Exercising (Continued)
Broad Commitment
When a community or an organization engages in a progressive exercise
program, the program needs to be comprehensive. A community
program must consider every type of responding agency and organization
in the community.
Communities are composed of more than police, fire, and public works.
The following entities have requirements to exercise as well:
Hospitals
Airports, chemical, and nuclear facilities, and other regulated
organizations
Volunteer agencies and organizations in the private sector that
contribute services, materials, and personnel to the response and
recovery effort
Work sitespublic or privatethat may be vulnerable to significant
emergency events
A progressive exercise program, therefore, requires a commitment from
various agencies and organizations to participate in increasingly
challenging exercises over a period of time, to address the larger
emergency management system rather than a single problem.
The same is true when a single organization engages in a progressive
exercise program. It must consider the role of each department and each
function that will be involved in responding to and recovering from an
emergency event, and it must secure the commitment of all of those
elements to a sequence of progressive internal and external exercises
that will build a coordinated, effective response.
Careful Planning
Exercises require careful planning around clearly identified goals. Only
through identifying exercise goals, then designing, developing,
conducting, and analyzing the results can those who are responsible for
emergency operations be sure of what works—and what does not.
Page 2.2
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Progressive Exercising (Continued)
Increasing Complexity
Exercises should be organized to increase in complexityfor example,
from tabletop discussions to functional exercises to a full-scale exercise.
Each type of exercise builds on previous exercises using more
sophisticated simulation techniques and requiring more preparation time,
personnel, and planning.
Rushing into a full-scale exercise too quickly can open the door to
potential failure because shortfalls have not been identified through less
complicated and less expensive exercises.
Success Breeds Success
An important advantage of building incrementally to a full-scale exercise
is that successful exercise experiences breed new successes:
Officials and stakeholders are more willing to commit resources.
Personnel are more motivated and look forward to the next exercise.
Confidence increases.
Operating skills improve.
Who Participates?
For a community-wide exercise program, the jurisdiction determines what
agencies, organizations, and stakeholders participate in each exercise.
Participants are further determined by the nature and size of the exercise.
Larger exercises would include all of the participants who would have
responsibilities in a real emergency. Smaller exercises, which focus on a
limited aspect of the emergency plan, would limit the number of
participants.
Exercise Design
Page 2.3
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Who Participates? (Continued)
The same is true of exercises conducted by a particular organization. For
example, let’s look at the case of a beer or soft drink bottler that during
disasters converts its production line over to bottling water for mass care.
This organization might design exercises to test procedures for:
Coordination with jurisdiction officials.
Managerial decision making on when to convert, how much of the line
to convert, and when to convert back.
Internal notifications.
Line personnel responsibilities.
Temporary facility changes.
Coordination with suppliers.
Product distribution.
Transitioning back to regular production.
Documentation.
In either casewhether the exercises involve an entire community or a
more limited populationthe nature of the exercise somewhat determines
the participants. On one end of the spectrum, a tabletop exercise might
involve only key decision makers. An exercise to test particular functions
would limit its participants to those functions. And a full-scale exercise
might involve the entire community or the whole facility.
Some types of exercises have additional participant requirements. For
example, a functional exercise involves not only players but simulators,
controllers, and evaluators.
Page 2.4
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included?
There are five main types of activities in a comprehensive exercise
program:
Orientation seminar
Drill
Tabletop exercise
Functional exercise
Full-scale exercise
As we have discussed, these activities build from simple to complex, from
narrow to broad, from least expensive to most costly to implement, from
theoretical to realistic. When carefully planned to achieve specified
objectives and goals, this progression of exercise activities provides an
important element of an integrated emergency preparedness system.
Orientation Seminar
Purpose
As the name suggests, the orientation seminar is an overview or
introduction. Its purpose is to familiarize participants with roles, plans,
procedures, or equipment. It can also be used to resolve questions of
coordination and assignment of responsibilities.
Characteristics
Key characteristics of the orientation seminar are summarized in the table
on the next page.
Exercise Design
Page 2.5
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Orientation Seminar Characteristics
Format
The orientation seminar is a very low-stress event, usually presented as an informal
discussion in a group setting. There is little or no simulation. (For this reason,
orientations do not qualify as FEMA-recognized exercises.) A variety of seminar formats
can be used, including:
Applications
Lecture.
Discussion.
Slide or video presentation.
Computer demonstration.
Panel discussion.
Guest lecturers.
The orientation seminar can be used for a wide variety of purposes, including:
Discussing a topic or problem in a group setting.
Introducing something new (e.g., policies and plans).
Explaining existing plans to new people (e.g., newly elected officials or executives
need an explanation of the EOP and their role at the EOC; new employees need an
orientation to operational plans as they relate to emergencies).
Introducing a cycle of exercises or preparing participants for success in more
complex exercises.
Motivating people for participation in subsequent exercises.
Leadership
Orientations are led by a facilitator, who presents information and guides discussion.
The facilitator should have some leadership skills, but very little other training is required.
Participants
A seminar may be cross-functionalinvolving one or two participants for each function
or service being discussed (e.g., management, policy, coordination, and operations
staff). Or, it may be geared to several people from a single agency or department.
Facilities
A conference room or any other fixed facility may be used, depending on the purposes of
the orientation.
Time
Orientations should last a maximum of 1 to 2 hours.
Preparation
An orientation is quite simple to prepare (two weeks’ preparation time is usually
sufficient) and conduct. Participants need no previous training.
Page 2.6
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Conducting an Orientation
There are no cut-and-dried rules for an effective orientation; its purpose
will determine its format. Below are a few helpful guidelines for
conducting a seminar.
Orientation Seminar Guidelines
Be creative. You can use various discussion and presentation
methods. Think of interesting classes that you have attended in
other subjects, and borrow the techniques of good teachers and
presenters. For example, you might call on people one by one to
give ideas, plan a panel discussion, hold a brainstorming session,
present case studies for problem solving, or give an illustrated
lecture.
Get organized and plan ahead. Even though orientation seminars
are less complex than other activities, it is no time to “wing it.”
Be ready to facilitate a successful orientation seminar.
Discourage long tirades, keep exchanges crisp and to the point,
focus on the subject at hand, and help everyone feel good about
being there.
Drills
Purpose
A drill is a coordinated, supervised exercise activity, normally used to test
a single specific operation or function. With a drill, there is no attempt to
coordinate organizations or fully activate the EOC. Its role in an exercise
program is to practice and perfect one small part of the response plan
and help prepare for more extensive exercises, in which several functions
will be coordinated and tested. The effectiveness of a drill is its focus on
a single, relatively limited portion of the overall emergency management
system. It makes possible a tight focus on a potential problem area.
Characteristics
Key characteristics of drills are summarized in the table on the next page.
Exercise Design
Page 2.7
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Drill Characteristics
Format
A drill involves actual field or facility response for an EOC operation. It should be as
realistic as possible, employing any equipment or apparatus for the function being drilled.
Applications
Drills are used to test a specific operation. They are also used to provide training with
new equipment, to develop new policies or procedures, or to practice and maintain
current skills. Drills are a routine part of the daily job and organizational training in the
field, in a facility, or at the EOC. Some examples of drills run by different organizations
are listed below:
EOC: Call down procedures
Public works: Locating and placing road barriers under time constraints
Public health and safety: Site assessment and sampling
Red Cross: Locating specific types of blood within a time constraint
Military: Activation and mobilization drill
Airport: Fire Department response to the furthest part of a runway within a given
time
Chemical plant: Evacuation and isolation of spill area and valve system shutoff
Private sector resource provider: Warehouse readiness drill
Leadership
A drill can be led by a manager, supervisor, department head, or exercise designer.
Staff must have a good understanding of the single function being tested.
Participants
The number of participants depends on the function being tested. Coordination,
operations, and response personnel could be included.
Facilities
Drills can be conducted within a facility, in the field, or at the EOC or other operating
center.
Time
½ to 2 hours is usually required.
Preparation
Drills are one of the easiest kinds of exercise activities to design. Preparation may take
about a month. Participants usually need a short orientation beforehand.
Page 2.8
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Conducting a Drill
How a drill is conducted varies according to the type of drillranging from
simple operational procedures to more elaborate communication and
command post drills. For example, a command post drill would require
participants to report to the drill site, where a “visual narrative” would be
displayed in the form of a mock emergency. Equipment, such as vans,
command boards, and other needed supplies would be made available.
Given the variety of functions that may be drilled, there is no set way to
run a drill. However, some general guidelines are given below.
Drill Guidelines
Exercise Design
Prepare. If operational procedures are to be tested, review them
beforehand. Review safety precautions.
Set the stage. It’s always good to begin with a general briefing,
which sets the scene and reviews the drill purpose and objectives.
Some designers like to set the scene using films, slides, or
videotapes.
Monitor the action. After a drill has been started, it will usually
continue under its own steam. If you find that something you wanted
to happen is not happening, however, you might want to insert a
message to trigger that action. (We’ll learn more about messages
later on.)
Page 2.9
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Tabletop Exercise
Purpose
A tabletop exercise is a facilitated analysis of an emergency situation in
an informal, stress-free environment. It is designed to elicit constructive
discussion as participants examine and resolve problems based on
existing operational plans and identify where those plans need to be
refined. The success of the exercise is largely determined by group
participation in the identification of problem areas.
Characteristics
There is minimal attempt at simulation in a tabletop exercise. Equipment
is not used, resources are not deployed, and time pressures are not
introduced. Key characteristics of the tabletop exercise are summarized
in the table on the next page. We will discuss how to conduct a tabletop
exercise in Unit 5.
Page 2.10
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Tabletop Exercise Characteristics
Format
The exercise begins with the reading of a short narrative, which sets the stage for the
hypothetical emergency. Then, the facilitator may stimulate discussion in two ways:
Problem statements: Problem statements (describing major or detailed events)
may be addressed either to individual participants or to participating departments or
agencies. Recipients of problem statements then discuss the actions they might
take in response.
Simulated messages: These messages are more specific than problem statements.
Again, the recipients discuss their responses.
In either case, the discussion generated by the problem focuses on roles (how the
participants would respond in a real emergency), plans, coordination, the effect of
decisions on other organizations, and similar concerns. Often maps, charts, and
packets of materials are used to add to the realism of the exercise.
Applications
Tabletop exercises have several important applications. They:
Lend themselves to low-stress discussion of coordination and policy.
Provide a good environment for problem solving.
Provide an opportunity for key agencies and stakeholders to become acquainted
with one another, their interrelated roles, and their respective responsibilities.
Provide good preparation for a functional exercise.
Leadership
A facilitator leads the tabletop discussion. This person decides who gets a message or
problem statement, calls on others to participate, asks questions, and guides the
participants toward sound decisions.
Participants
The objectives of the exercise dictate who should participate. The exercise can involve
many people and many organizationsessentially anyone who can learn from or
contribute to the planned discussion items. This may include all entities that have a
policy, planning, or response role.
Facilities
A tabletop exercise requires a large conference room where participants can surround a
table.
Time
A tabletop exercise usually lasts from 1 to 4 hours but can be longer. Discussion times
are open-ended, and participants are encouraged to take their time in arriving at in-depth
decisionswithout time pressure. When the time is up, the activity is concluded.
Although the facilitator maintains an awareness of time allocation for each area of
discussion, the group does not have to complete every item for the exercise to be a
success.
Preparation
It typically takes about a month to prepare for a tabletop exercise. Preparation also
usually requires at least one orientation and sometimes one or more drills.
Exercise Design
Page 2.11
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Functional Exercises
Purpose
A functional exercise is a fully simulated interactive exercise that tests
the capability of an organization to respond to a simulated event. The
exercise tests multiple functions of the organization’s operational plan. It
is a coordinated response to a situation in a time-pressured, realistic
simulation.
Characteristics
A functional exercise focuses on the coordination, integration, and
interaction of an organization’s policies, procedures, roles, and
responsibilities before, during, or after the simulated event. Key
characteristics of a functional exercise are summarized in the following
table. We will discuss how to conduct a functional exercise in Unit 6.
Page 2.12
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Functional Exercise Characteristics
Format
Applications
This is an interactive exercise—similar to a full-scale exercise without the equipment. It
simulates an incident in the most realistic manner possible short of moving resources to
an actual site. A functional exercise is:
Geared for policy, coordination, and operations personnelthe “players” in the
exercise—who practice responding in a realistic way to carefully planned and
sequenced messages given to them by “simulators.” The messages reflect ongoing
events and problems that might actually occur in a real emergency.
A stressful exercise because players respond in real time, with on-the-spot decisions
and actions. All of the participants’ decisions and actions generate real responses
and consequences from other players.
Complex—Messages must be carefully scripted to cause participants to make
decisions and act on them. This complexity makes the functional exercise difficult to
design.
Functional exercises make it possible to test several functions and exercise several
agencies or departments without incurring the cost of a full-scale exercise. A functional
exercise is always a prerequisite to a full-scale exercise.
In some instances, taking part in a functional exercise may serve as a full-scale exercise
for a participating organization (e.g., a hospital may conduct its own full-scale exercise
as part of a community-based functional exercise).
Leadership
and
Participants
Functional exercises are complex in their organization of leadership and the assignment
of roles. The following general roles are used:
Facilities
Exercise Design
Controller: Manages and directs the exercise
Players: Participants who respond as they would in a real emergency (Players
should include policy makers; may include coordinators and operational personnel
directing field activities.)
Simulators: Assume external roles and deliver planned messages to the players
Evaluators: Observers who assess performance
It is usually conducted in the EOC or other operating center. Ideally, people gather
where they would actually operate in an emergency. Players and simulators are often
seated in separate areas or rooms. Realism is achieved by the use of telephones,
radios, televisions, and maps.
Page 2.13
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Functional Exercise Characteristics (Continued)
Time
A functional exercise requires from 3 to 8 hours, although it can run a full day or even
longer.
Preparation
Plan on 6 to 18 months or more to prepare for a functional exercise, for several reasons:
Page 2.14
Staff members need considerable experience with the functions being tested.
The exercise should be preceded by lower-level exercises, as needed.
The controller, evaluators, and simulators require training.
The exercise may require a significant allocation of resources and a major
commitment from organizational leaders.
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Full-Scale Exercise
Purpose
A full-scale exercise simulates a real event as closely as possible. It is
an exercise designed to evaluate the operational capability of emergency
management systems in a highly stressful environment that simulates
actual response conditions. To accomplish this realism, it requires the
mobilization and actual movement of emergency personnel, equipment,
and resources. Ideally, the full-scale exercise should test and evaluate
most functions of the emergency management plan or operational plan.
Characteristics
A full-scale exercise differs from a drill in that it coordinates the actions of
several entities, tests several emergency functions, and activates the
EOC or other operating center. Realism is achieved through:
On-scene actions and decisions.
Simulated “victims.”
Search and rescue requirements.
Communication devices.
Equipment deployment.
Actual resource and personnel allocation.
Key characteristics of full-scale exercises are summarized in the table on
the next page. We will discuss how to conduct a full-scale exercise in
Unit 7.
Exercise Design
Page 2.15
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
What Activities Are Included? (Continued)
Full-Scale Exercise Characteristics
Format
The exercise begins with a description of the event, communicated to responders in the
same manner as would occur in a real event. Personnel conducting the field component
must proceed to their assigned locations, where they see a “visual narrative” in the form
of a mock emergency (e.g., a plane crash with victims, a “burning” building, a simulated
chemical spill on a highway, or a terrorist attack). From then on, actions taken at the
scene serve as input to the simulation taking place at the EOC or operating center.
Applications
Full-scale exercises are the ultimate in the testing of functionsthe “trial by fire.”
Because they are expensive and time consuming, it is important that they be reserved
for the highest priority hazards and functions.
Leadership
and
Participants
One or more controllers manage the exercise, and evaluators are required. All levels of
personnel take part in a full-scale exercise:
Policy personnel
Coordination personnel
Operations personnel
Field personnel
Facilities
The event unfolds in a realistic setting (e.g., a plane crash at an airport, a terrorist attack
at a public venue). The EOC or other operating center is activated, and field command
posts may be established.
Time
A full-scale exercise may be designed to be as short as 2 to 4 hours, or to last as long as
1 or more days.
Preparation
Preparation for a full-scale exercise requires an extensive investment of time, effort, and
resources—1 to 1½ years to develop a complete exercise package. This timeframe
includes multiple drills and preparatory tabletop and functional exercises. In addition,
personnel and equipment from participating agencies must be committed for a
prolonged period of time.
Page 2.16
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Comparing the Five Activities
Each of the five activities just described plays an important part in the
overall exercise program. The following chart lists some of reasons for
conducting each type of activity. Key characteristics of each type of
exercise are shown in the table on the next page.
Reasons to Conduct Exercise Program Activities
Orientation
Drill
Tabletop
Exercise
Functional
Exercise
Full-Scale
Exercise
No previous
exercise
Assess
equipment
capabilities
Practice group problem
solving
Evaluate a function
Assess and improve
information analysis
No recent
operations
Test response
time
Promote executive
familiarity with
emergency
management plan
Observe physical
facilities use
Assess and improve
interagency
cooperation
New plan
Personnel
training
Assess plan coverage
for a specific case
study
Reinforce
established policies
and procedures
Support policy
formulation
New
procedures
Assess
interagency
cooperation
Assess plan coverage
for a specific risk area
Assess hospital
preparedness
Assess negotiation
procedures
New staff,
leadership
Verify
resource and
staffing
capabilities
Examine staffing
contingencies
Test seldom-used
resources
Test resource and
personnel allocation
New nuclear
facility
Test group message
interpretation
Measure resource
adequacy
Direct media attention
New
industrial risk
Assess interagency or
interdepartmental
coordination
Assess and
strengthen interjurisdictional or
interorganizational
relations
Assess and
strengthen
interjurisdictional or
interorganizational
relations
Exercise Design
Observe information
sharing
Assess personnel and
equipment locations
Train personnel in
negotiation
Test equipment
capabilities
Page 2.17
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Comparing the Five Activities (Continued)
Key Characteristics
The following table briefly compares the key characteristics of the five
types of exercise program activities.
Comparison of Key Activity Characteristics
Format
Orientation
Drill
Informal
discussion in
group setting
Actual field or
facility
response
Various
presentation
methods
Actual
equipment
Tabletop
Exercise
Functional
Exercise
Full-Scale
Exercise
Narrative
presentation
Interactive,
complex
Realistic event
announcement
Problem
statements or
simulated
messages
Players respond to
messages
(events/problems)
provided by
simulators.
Personnel gather
at assigned site
Group
discussion
No time
pressures
Realistic but no
actual equipment.
Visual narrative
(enactment)
Actions at scene
serve as input to
EOC simulation
Conducted in real
time; stressful
Leaders
Facilitator
Manager,
supervisor,
department
head, or
designer
Facilitator
Controller
Controller(s)
Participants
Single
agency/
department,
or crossfunctional
Personnel for
the function
being tested
Anyone with
a policy,
planning, or
response role
for the type of
situation
used
Players (policy,
coordination, and
operations
personnel)
All levels of
personnel (policy,
coordination,
operations, field)
Simulators
Evaluators
Facilities
Time
Page 2.18
May include
coordination,
operations,
response
personnel
Evaluators
Conference
room
Facility, field,
or EOC
Large
conference
room
EOC or other
operating center
(multiple rooms)
Realistic setting
1–2 hours
½–2 hours
1–4 hours or
longer
3–8 hours or longer
2 hours to 1 or
more days
EOC or other
operating center
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Comparing the Five Activities (Continued)
Comparison of Key Activity Characteristics (Continued)
Preparation
Orientation
Drill
Simple
preparation,
2 weeks
Easy to
design, 1
month
Participants
need
orientation
Exercise Design
Tabletop
Exercise
1 month
preparation
Preceded by
orientation and
1 or more
drills
Functional
Exercise
Complex, 6–18
months
preparation
Preceded by
simpler exercises
Significant
allocation of
resources
Full-Scale
Exercise
Extensive time,
effort, resources
1–1½ years
development
Including
preparatory drills,
tabletops,
functional
exercises
Page 2.19
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program
As you have seen, a progressive exercise program involves the combined
efforts of many agencies, departments, or other entities in a series of
activities that increase in complexity until mastery is achieved.
Building an exercise program is a little like planning a single
exerciseexcept that the activities take place on a much larger scale.
Plans are developed by a team and are based on a careful examination
of the operating plan.
The development of an exercise program has many facets, including:
Analysis of capabilities and costs.
Scheduling of tasks.
Public relations efforts.
Development of a long-term plan.
Careful work on the long-term plan will carry over into the design of
individual exercises.
The Planning Team
A comprehensive exercise plan requires the combined efforts of many
people. For a community program, the team should consist of
representatives from every major government agency in the jurisdiction
and from private and volunteer organizations large enough to have
exercise mandates:
Page 2.20
Fire department
Sheriff
Public works
Hospital
Airport
Schools
Communications
Volunteer organizations
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
In a private or volunteer organization that is planning an exercise
program, the team would be similarly organized, with representatives of
all major functions and departments.
The emergency manager and other emergency personnel (or the person
responsible for the organization’s emergency response effort) would take
the lead, and the representatives would then meet to analyze what they
need to do to support one another. Often organizations can meet the
exercise needs of more than one agency at a time. This teamwork can
help establish important relationships among participating organizations.
Later, members of the team can also serve on exercise design teams to
design individual exercises.
Goal Setting
Because a comprehensive exercise program usually extends over several
months, it is important to set long-term goals or develop a mission
statement. Without this, the program is likely to lack focus and continuity.
Schedule and Sequence
When these preliminary steps (organizing the team and establishing a
mission statement and goals) have been taken, the hard work of drawing
up a plan can take place. Developing the exercise program plan involves:
1. Laying out a series of exercises that can meet the needs of the
various participating entities.
2. Organizing them into a workable sequence and time schedule.
Exercise Design
Page 2.21
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
Plan Format
An exercise program plan can use any format, but it should include the
following elements:
A timeframe
A problem statement
Long-range goal(s)
Functional objectives
A schedule
Exercise descriptions, including:
•
•
•
•
Type of exercise.
Participants.
Purpose.
Rationale.
A sample plan format is shown on the next page. This is a hypothetical
example of one community’s exercise plan.
Page 2.22
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
Plan Format
Sample Plan: Comprehensive Exercise Program
Note: During the previous year, several tabletops and functional exercises were
held to test weaknesses in Communications, Alert and Notification, and
Individual/Family Assistance. The series of exercises might take less time in
some communities.
Timeframe
The exercise program extends over an 18-month period.
Present Problems
This program has been formulated to address problems arising as a result of
rapid population growth. According to experts, possibilities for a mass casualty
incident are increasing. Personnel involved in the functional areas listed below
have not been tested in the last year.
Long-Range Goal
To work toward a full-scale exercise testing all important functions in the context
of a mass casualty incident. This will satisfy FEMA requirements and full-scale
exercise requirements for the hospital and airport, by involving these agencies.
Functions to be
Tested
Health and Medical, Public Information, Coordination and Control (EOC
Operations, Incident Command)
First Month
Exercise Design
To determine the adequacy of plans and procedures within the following
functional areas to handle a mass casualty incident: Health and Medical,
Public Information, Coordination and Control (EOC Operations, Incident
command).
To test the ability of the above-named functional areas to communicate and
coordinate their response efforts during a mass casualty incident.
To test the ability to obtain adequate resources (locally and through mutual
aid agreements) in the above-named functional areas to handle a mass
casualty incident.
Exercise:
Orientation
For:
Emergency Management staff and heads of various agencies:
Mental Health Association, State Funeral Director, County
Coroner, County Fire, County Police
Purpose:
To review new plans and procedures for dealing with mass
casualty incidents.
Rationale:
Inform those who are unaware of plans and gain support and
additional input from department leaders.
Page 2.23
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
Plan Format
Second Month
Fourth Month
Seventh Month
Eighth Month
Page 2.24
Sample Plan: Comprehensive Exercise Program
Exercise:
Orientation
For:
Emergency management staff and heads of various agencies:
fire, police staff, county Public Information Officer (PIO)
Purpose:
To review new plans for mass casualty incidents with
responders.
Rationale:
Gain support and additional input from first responders and
acquaint them with leadership’s plans.
Exercise:
Training course with functional exercise.
For:
Responders and incident commanders; Emergency
management staff; various chiefs, captains, lieutenants from fire
and police; Emergency Medical Services (EMS), mental health,
Radio Amateur Civil Emergency Services (RACES), funeral
directors, county coroner, county PIO
Purpose:
To provide training in field mass casualty incident response.
Rationale:
This is a training session in the FEMA Field Mass Casualty
Incident Response course. This course provides an excellent
overview of specific needs related to a mass fatality incident.
The course culminates in a functional activity.
Exercise:
Drill
For:
Fire, police, EMS, coroner, funeral directors
Purpose:
To set up the Incident Command System (ICS) for responding to
mass fatality incidents.
Rationale:
Establish ICS to support needed functions and tasks.
Exercise:
Drill
For:
PIO, fire, police, Emergency Manager
Purpose:
To set up Joint Information Center (JIC)
Rationale:
Acquaint participants with the PIO function and JIC operations,
test equipment and lines of communication.
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
Plan Format
Ninth Month
Eleventh Month
Fourteenth Month
Fifteenth Month
Exercise Design
Sample Plan: Comprehensive Exercise Program
Exercise:
Drill
For:
Mental health, funeral directors, PIO, clergy, Emergency
Manager
Purpose:
To set up a family assistance center.
Rationale:
Acquaint participants with the office equipment and test role as
support to the victims’ families.
Exercise:
Tabletop exercise
For:
Incident Command, PIO, police, fire, EMS
Purpose:
To pull together the three functions tested in the previous drills in
the context of a mass casualty incident as the result of a hotel
fire.
Rationale:
Address and resolve potential communication and coordination
problems among the Incident Command, PIO, police, fire, and
EMS before the functional exercise.
Exercise:
Functional exercise
For:
Communications, coordination and control, ICS and EOC, PIO,
health and medical
Purpose:
To test additional functions for mass fatality in the context of a
plane crash: Emergency public information effectiveness, health
and medical mass casualty, coordination and control, ICS, and
EOC operations.
Rationale:
Identify preliminary shortfalls and test overall coordination before
full-scale exercise.
Exercise:
Tabletop exercise
For:
Communications, coordination and control, ICS and EOC, PIO,
health and medical
Purpose:
To correct and retest problems identified in preceding functional
exercise.
Rationale:
Work out potential problems discovered in the previous
functional exercise and make adjustments necessary before the
full-scale exercise.
Page 2.25
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Building an Exercise Program (Continued)
Plan Format
Eighteenth Month
Page 2.26
Sample Plan: Comprehensive Exercise Program
Exercise:
Full-scale exercise: Airplane crash
For:
All agencies: heads of agencies and responders
Purpose:
To test all functions in the context of a mass casualty airplane
crash.
Rationale:
The exercise fulfills full-scale requirements for FEMA, Federal
Aviation Administration (FAA) requirements for airports, and Joint
Commission on Accreditation of Healthcare Organizations
(JCAHO) Certification for the hospital.
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Activity
Activity: Develop a Comprehensive Exercise Program Plan
Working from the needs assessment you completed for your jurisdiction
or organization in the previous unit, develop a plan for a comprehensive
exercise program to address those needs. Include the key elements
discussed in the last section. You can use the following worksheet
(which also appears as Job Aid 2 in Appendix A) in developing your plan.
If this format doesn’t work for you, change it to meet your needs.
Comprehensive Exercise Program Planning Worksheet
Timeframe:
Present Problems:
Long-Range Goal:
Functional Objectives:
Month:
Exercise:
For:
Purpose:
Rationale:
Exercise Design
Page 2.27
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Activity: Develop a Comprehensive Exercise Program Plan
(Continued)
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Page 2.28
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Activity: Develop a Comprehensive Exercise Program Plan
(Continued)
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Exercise Design
Page 2.29
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Activity: Develop a Comprehensive Exercise Program Plan
(Continued)
Month:
Exercise:
For:
Purpose:
Rationale:
Month:
Exercise:
For:
Purpose:
Rationale:
Page 2.30
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Summary and Transition
Unit 2 provided an overview of the five main types of exercise activities
that make up a comprehensive exercise program. Unit 3 provides
general information on the exercise development process and illustrates
how the activities in that process relate to one another.
Reference
Library
For More Information
The FEMA Comprehensive Exercise Program:
www.fema.gov/pte/section3.htm.
Exercise Design
Page 2.31
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Check
Knowledge Check
Carefully read each question and all of the possible answers before selecting the most
appropriate response for each test item. Circle the letter corresponding to the answer you have
chosen.
1. In a progressive exercise program, the exercises:
a.
b.
c.
d.
Have a consistent format but are conducted with increasing frequency.
Are organized to increase in complexity.
Are organized to decrease in complexity.
Are sponsored on a rotating basis by different organizations.
2. A likely cause of exercise failure is:
a.
b.
c.
d.
Running too many drills and functional exercises.
Conducting orientations and drills before functional exercises.
Rushing into a full-scale exercise before the organization is ready.
Basing the selection of participants on the nature of the exercise.
3. Which statement is true of an orientation?
a.
b.
c.
d.
It requires field sites and actual equipment.
It may be used to introduce or explain plans and policies.
It involves a controller, simulators, and evaluators.
It is used to test a specific operation.
4. Which statement is true of a drill?
a.
b.
c.
d.
It is best conducted in a conference room.
It involves a controller, simulators, and evaluators.
It is used to test a specific operation.
It is aimed primarily at policy makers and decision makers.
5. Which statement is true of a tabletop exercise?
a.
b.
c.
d.
It involves a highly realistic simulation.
It involves a controller, simulators, and evaluators.
It requires field sites and actual equipment deployment.
It is a facilitated analysis of an emergency situation.
6. Which statement is true of a functional exercise?
a.
b.
c.
d.
It involves a controller, simulators, and evaluators.
It is simple, informal, and stress-free.
It requires field sites and actual equipment deployment.
It may be used to introduce or explain plans and policies.
Page 2.32
Exercise Design
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Knowledge Check (Continued)
7. Which statement is true of a full-scale exercise?
a.
b.
c.
d.
It involves a highly realistic simulation.
It is aimed primarily at policy makers and decision makers.
It requires field sites but actual equipment remains in the shed.
It is used to test a specific operation.
8. Development of an exercise program includes analysis of capabilities and costs and
scheduling of tasks.
a. True
b. False
9. The planning for an exercise program should be done primarily by the emergency manager
or whoever is responsible for the organization’s emergency response effort.
a. True
b. False
10. Which statement is NOT true of progressive exercise programs?
a. They allow participating organizations to test both implementation of procedures and
coordination with each other.
b. Each successive exercise builds upon the previous one until mastery is achieved.
c. The entire program is planned to achieve identified goals.
d. Very little commitment is required from participating agencies because they can opt in
or out at any time.
Exercise Design
Page 2.33
UNIT 2: COMPREHENSIVE EXERCISE PROGRAM
Answers
Knowledge Check (Continued)
1. b
2. c
3. b
4. c
5. d
6. a
7. a
8. a
9. b
10. d
Page 2.34
Exercise Design
Unit 3: The Exercise
Process
UNIT 3
THE EXERCISE
PROCESS
Introduction
In the previous unit, we took the broad viewthe planning of an entire
comprehensive exercise program. In this unit, we will take a step closer
and look at what goes into planning and implementing a single exercise
within that program.
When an exercise proceeds smoothly, it all looks so easy! But there is
far more to it than the time spent in the exercise itself. A great deal of
thought and planning preceded the exercise, and more work will follow.
An exercise is not an independent activity with clearly marked beginning
and ending points. Rather, it can be seen as part of a complex process
that involves a number of accomplishments and tasks. All of those tasks
are interrelated; they affect not only the success of the current exercise
but the design and success of future exercises.
It will be much easier to understand and visualize the individual activities
if you can first see how they fit into the overall process. This unit
presents an overview of the main exercise activities and their
relationships to one another. It also discusses some important aspects of
laying the groundwork for an exercise. In later units, we will focus more
closely on particular aspects of the design process.
Unit 3 Objectives
After completing this unit, you should be able to:
Exercise Design
Identify the five major accomplishments in designing and
implementing an exercise.
Describe the organization of an exercise design team.
Define the purpose of the four exercise documents.
Page 3.1
UNIT 3: THE EXERCISE PROCESS
The Big Picture
In preparation for launching an exercise program and designing individual
exercises, it is important to have a clear vision of the entire exercise
process. There are a number of ways to visualize the exercise process.
Let’s look briefly at three graphic representations of the process:
Organized by task sequence, organized by task categories and phase,
and organized by major accomplishments. Each of them helps clarify the
overall process.
Sequence of Main Tasks
In the following graphic, the main tasks are shown in their approximate
sequence. This chart may help you get a good mental picture of the
entire sequence. It’s also a good place to start in creating a more
detailed schedule of tasks.
Sequence of Tasks for a Successful Exercise
Before
Review
Review
Plan
Plan
Conduct
Conduct
Needs
Needs
Assessment
Assessment
Send
Send
Exercise
Exercise
Directive
Directive
List
List Major
Major &
&
Detailed
Detailed
Events
Events
Organize
Organize
Design
Design
Team
Team
Determine
Determine
Expected
Expected
Actions
Actions
After
During
Write
Write
Narrative
Narrative
Page 3.2
Determine
Determine
Exercise
Exercise
Scope
Scope
Assess
Assess
Capability
Capability
Write
Write
Purpose
Purpose
Statement
Statement
Organize
Organize
Evaluation
Evaluation
Team
Team
Prepare
Prepare
Objectives
Objectives
Write
Write
Messages
Messages
Finalize
Finalize
Exercise
Exercise
E
Enhancements
nhancements
Develop
Develop
Schedule
Schedule
Develop
Develop
Evaluation
Evaluation
Format
Format
Conduct
Conduct
Exercise
Exercise
Conduct
Conduct
Postexercise
Post-Exercise
Meeting
Meeting
Write
Write
After-Action
After-Action
Report
Report
Conduct
Conduct
Followup
Follow-Up
Activities
Activities
Exercise Design
UNIT 3: THE EXERCISE PROCESS
The Big Picture (Continued)
Categories of Tasks
Another way to look at the exercise process is by organizing the tasks
into two dimensions:
Exercise phase (preexercise, exercise, and postexercise)
Type of task (those related to design and those related to evaluation)
The following matrix illustrates this type of organization.
Task Categories
Preexercise Phase
Design
Evaluation
Exercise Design
Exercise Phase
Review plan
Assess capability
Address costs and
liabilities
Gain support/issue
exercise directive
Organize design team
Draw up a schedule
Design exercise (8
design steps)
Select evaluation team
leader
Develop evaluation
methodology
Select and organize
evaluation team
Train evaluators
Postexercise Phase
Prepare facility
Assemble props and
other enhancements
Brief participants
Conduct exercise
Observe assigned
objectives
Document actions
Assess achievement of
objectives
Participate in
postexercise meetings
Prepare evaluation
report
Participate in followup
activities
Page 3.3
UNIT 3: THE EXERCISE PROCESS
The Big Picture (Continued)
Major Task Accomplishments
One of the simplest ways to envision the exercise process is by major
accomplishments. As shown in the graphic below, the process can be
factored into five major accomplishments that make up the design cycle:
1. Establishing the base
2. Exercise development
3. Exercise conduct
4. Exercise critique and evaluation
5. Exercise followup
1. Establishing the base
5. Exercise
followup
2. Exercise
development
4. Exercise critique
and evaluation
3. Exercise conduct
Each accomplishment is the outgrowth of a set of specific tasks and
subtasks (similar to those listed in the earlier models), which we’ll review
shortly. The process is circular, with the results of one exercise providing
input for the next.
Page 3.4
Exercise Design
UNIT 3: THE EXERCISE PROCESS
The Big Picture (Continued)
Flexibility Is Key
The exercise process applies no matter what level of exercise is being
designed and no matter what size organization is using it. Whether you
are located in a large jurisdiction with extensive resources, a smaller
community with meager resources, or a private or volunteer organization
with a particular vested interest in emergency preparations, you can use
this process.
The underlying premise is that this process must be flexible enough to
meet the unique exercise needs of the organization using it. Therefore,
as you consider each task, it is important to remember this:
Each task must be designed, tailored, and applied in a manner that suits
your organization’s specific objectives and capabilities.
Accomplishment 1: Establishing the Base
Exercises are designed to motivate personnel to think or act as they
would in a real event. Establishing the base is basically laying the
groundwork for the exercise to ensure that motivation occurs. Getting
ready for the exercise involves:
1. Reviewing the current plan: What does it tell us about ideal
performancei.e., how are we supposed to implement policies and
procedures in the event of an emergency?
2. Conducting a needs assessment: What are our risks and
vulnerabilities, and where do we need to focus our training efforts?
3. Assessing the jurisdiction’s capability to conduct an exercise:
What resources can we draw from to design and implement an
exercise?
4. Defining the exercise scope: How should we limit this exercise?
5. Selecting the exercise type: What type of exercise best meets our
training needs within the available resources?
6. Addressing the costs and liabilities: What will the exercise cost in
terms of funding, human resources, and organizational liability?
7. Developing a statement of purpose: What do we expect to gain
from the exercise?
Exercise Design
Page 3.5
UNIT 3: THE EXERCISE PROCESS
Accomplishment 1: Establishing the Base (Continued)
8. Gain support and announce the exercise: How can we obtain the
support of those in authority and then use that support to garner
support among participants?
Additional “groundwork” tasks include organizing a design team and
developing a work plan and schedule.
Establishing the base need not take a long time and can often be done
largely at your desk or with the help of a few other people. We’ll revisit
some of these tasks shortly.
Accomplishment 2: Exercise Development
Exercisesparticularly tabletop, functional, and full-scale exercisesare
developed by following an eight-step process:
1. Assess needs.
2. Define scope.
3. Write a statement of purpose.
4. Define objectives.
5. Compose a narrative.
6. Write major and detailed events.
7. List expected actions.
8. Prepare messages.
Page 3.6
Exercise Design
UNIT 3: THE EXERCISE PROCESS
Accomplishment 2: Exercise Development (Continued)
These eight steps will be the focus of Unit 4.
Duplicate Steps?
Performing a needs assessment, defin...
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