Tag emergency preparedness

Managing an Exercise Program – Part 1

Tim Riecker, The Contrarian Emergency Manager 3 Comments

This post is part of a 10-part series on Managing an Exercise Program. In this series I provide some of my own lessons learned in the program and project management aspects of managing, designing, conducting, and evaluating Homeland Security Exercise and Evaluation Program (HSEEP) exercises. Your feedback is appreciated!

Managing an Exercise Program – Part 1

Managing an Exercise Program – Part 2: Develop a Preparedness Strategy

Managing an Exercise Program – Part 3: Identify Program Resources and Funding

Managing an Exercise Program – Part 4: Conduct an Annual Training & Exercise Planning Workshop.

Managing an Exercise Program – Part 5: Securing Project Funding

Managing an Exercise Program – Part 6: Conducting Exercise Planning Conferences

Managing an Exercise Program – Part 7: Develop Exercise Documentation

Managing an Exercise Program – Part 8: Preparing Support, Personnel, & Logistical Requirements

Managing an Exercise Program – Part 9: Conducting an Exercise

Managing an Exercise Program – Part 10: Evaluation and Improvement Planning

 

From inception to improvement planning, I think preparedness exercises provide great value to the jurisdictions, companies, and organizations that do them.  From a seminar to a full-scale exercise, there is much to be learned by participants as well as the strengths and areas for improvement identified from emergency plans.  I’ve been inspired to write a series of blog posts on each of the phases within the Homeland Security Exercise Evaluation Program (HSEEP) cycle.  The cycle, shown below, encompasses not just the steps in executing an exercise (project management), it includes exercise program management as well, which I think is often neglected.  Doings exercises is great, but to ensure continuity, quality, and continuous improvement, any entity that does exercises should have an exercise program.  Having a structured exercise program will ensure that your organization capitalizes on your exercise investments to the greatest degree possible.  Just like any other functional program, it needs to be managed.

HSEEP Cycle

Each blog post will give some insight and lessons learned from my own experiences with exercises large and small and I will reflect on exercise program management responsibilities throughout the cycle.  For more in-depth information on exercise program management, I refer you to HSEEP Volume I.  I will also have an update on this HSEEP volume in the near future as DHS will soon release a revision.

The first thing I want to cover is exercise program management as a general concept.  As stated in HSEEP Volume I, “Exercise program management is directed toward achieving the objectives established during the multi-year planning process…”.  As an exercise program grows, so should the responsibilities of managing it.  Most organizations don’t need a full-time exercise program manager, but they will require someone with the flexibility to vary how much time they spend on the exercise program.  The planning and conduct of an exercise can take up a considerable amount of time, and the program manager needs to shepherd this process.  In small organizations, the exercise program manager may be one of the few people involved in these activities as well.

Obviously the person in charge of an exercise program needs to be knowledgeable and experienced in exercises.  As with the oversight of any program, you need to have the right person in place.  Some caution should be used here, however – there are plenty of folks with LOTS of exercise experience… BUT the vast majority of experience out there is as a player.  Players, as a general rule, don’t experience all the machinations behind putting an exercise together.  Someone may have been a player in the largest exercise known to human kind, but that doesn’t make them adept at exercises.  There is plenty of training out there addressing various areas of exercises: the HSEEP training course, Exercise Design, Exercise Evaluation, and others.  These are great – but the world is full of ‘trained’ people.  Do they have the experience to do the job?  It doesn’t take a lot of experience, in fact, in my opinion, a little experience can go a long way – especially if it’s the right experience and they were taught the right way to do it from someone with a lot of experience.  I’ve fully immersed interns in many of the areas of exercise program management and would be fully confident in their ability to run a program for an organization.

As mentioned above, exercise program management centers on the multi-year training and exercise plan (MYTEP), which makes sense as this document will outline requirements, goals, and benchmarks for the program.  Building this plan is not the first, though.  We know that before we can write a plan, we need to do an analysis or an assessment of where we stand.  This is why the first step in the HSEEP cycle (above) is Updating Preparedness Assessments.  As much of a fan as I am of the HSEEP documents, they do fall rather short on providing guidance relative to this step.  It can be broken down easily enough, though.

A preparedness assessment, to me, would identify where we stand and where we want to be in terms of preparedness.  The resultant gap would then feed the second step in the HSEEP cycle – developing a preparedness strategy.  Let’s define preparedness: traditionally, it involves planning, training, and exercising; we can build from this to give us the data we need.  An absolute priority is identifying and assessing risk.  Hopefully your jurisdiction has a recent hazard analysis or THIRA, or your company or organization has a recent business impact analysis (BIA).  Having a recent hazard analysis done will identify the threats you need to be prepared for.  If you don’t have a recent one of these, I would suggest that you are way ahead of yourself with exercises and need to take a step back in emergency management to do one of these and build a plan.  Based upon the results of your hazard analysis, do you have the necessary plans (and are they up to date?) to address the hazards?

The second assessment should be a capabilities assessment.  You can reference FEMA‘s list of core capabilities to ensure that you are examining everything you need to.  Keep in mind that not everyone needs to have every capability.  You may not have a need for certain capabilities or it may not be feasible for you to have it based upon costs – so long as you can obtain that capability from someone else in times of disaster.  However, there are certain capabilities, based upon your hazards, that you want to ensure that you have.  If you don’t have them, they need to be developed.  That’s a gap.

A third assessment, related to the second, would be to identify needs to develop personnel capabilities – specifically through the means of training.  Yep, a Training Needs Assessment.  I’ve blogged previously about this.  Your identified needs become another gap to include in your preparedness assessment.

Lastly, you should do an assessment of exercises and real life events to date.  While you are just starting to formalize your exercise program, I still think an assessment of exercise progress to date is important.  While you may not have had a formal program, you have likely done some exercises or at least participated in someone else’s.  What plans have been tested with these exercises?  How long ago were they conducted?  Do you have After Action Reports?  (Read my article in Emergency Management Magazine on the importance of AARs and implementing corrective actions).  How about lessons learned and after action reports from actual incidents?  What gaps from these still need to be addressed?

All of this data and these documents can be pulled together and referenced in a simple, cohesive document outlining your preparedness needs.  It seems like a lot of work, but without identifying our needs, we can’t move forward with an effective exercise program.

What are your thoughts on identifying preparedness needs?  Is there anything I’ve missed?

Thanks for reading and be on the lookout for part two of Managing an Exercise Program where I will outline the development of a preparedness strategy.

 

The Emergence of Whole Community Planning

Tim Riecker, The Contrarian Emergency Manager Leave a comment

FEMA has contracted the development of a national Whole Community disaster training program.  This should result in some of the best planning guidance ever put forward by FEMA since CPG-101.  What is ‘Whole Community’ planning?  Whole Community planning takes into account everything in your community, not just the hazards, but also the vulnerable populations, as well the community’s resources – all of them, to include the private sector.  This is smart planning!

Timothy RieckerI don’t know what the final guidance will look like, but I’m imagining a process, imbedded within our existing planning process, which is similar to a SWOT analysis (strengths, weaknesses, opportunities, and threats) which has long been used as a business analysis tools.  Strengths and weaknesses are internal reflections, while opportunities and threats have you looking to the outside.  From the perspective of an emergency planner for a community, strengths and weaknesses would reference their innate government-based capabilities (remember capabilities-based planning?  I’m still a big fan); while opportunities and weaknesses would reference what is brought to the table by the rest of the community (i.e. private sector, NGO, and even the citizens themselves – such as a neighborhood watch or CERT).

In many ways, good planners and emergency managers have already been doing this.  They have been capitalizing on relationships with the private sector and NGOs and building plan annexes based upon these relationships – such as human services oriented plans and logistics plans.  Moving forward as a ‘branded’ concept, Whole Community planning will become the standard, not just a best practice, and will evolve as more people do it and make it better.  This concerted effort will ensure that the entire community is moving forward in a coordinated fashion and with common goals in the response to and recovery from an incident.  I’m also hopeful that this Whole Community guidance will give some input on community preparedness as well.

The project will be released in phases over the next three years, so be looking out for it.

Let’s Bring Human Interaction Back Into Training

Tim Riecker, The Contrarian Emergency Manager Leave a comment

I love technology.  I really do.  I generally don’t have any problems with the accomplishments or advancements we’ve made and I’m not looking to abolish any of the triumphs or practices we have in place as a result of technology, but there are some things we have to step back on a bit.  One of those things is the extreme volume of self-paced, internet learning, e-learning, independent study, etc. types of programs out there.  We’ve accomplished a great deal in regard to these self driven types of programs and they do have value – yet I think we’re losing touch with the human factor.

When I started in the training business, the internet was still fairly youthful and humanity hadn’t yet realized all the potential it held (we still don’t, but we were a much longer ways away from it then).  There was no such thing as online learning.  You could download training materials and references, maybe even submit test answers online (although the norm was still to fax answers), but that was about as interactive as it got.  The next step was pretty pathetic – uploading slides in a PowerPoint format or something similar, to the internet for people to view.  As time progressed, we saw great advances in online learning.  Now we have video, audio, in-course quizzes and learning checks, even biometrically-driven verification systems to ensure that it’s still you taking the course (don’t believe me?  take the defensive driving course on-line).  Courses are much more comprehensive and provide both internal and external links to additional information and content areas.  I think it’s fantastic and we can’t stop this advancement – but we can’t let it take over, either.  All things in moderation.

People need interaction.  In 1970, Malcolm Knowles identified, as one of his six characteristics of adult learners, that adult learners are generally autonomous and self-directed.  While this may be true, it doesn’t mean that all learning is to be accomplished in isolation or without facilitation.  Adult learners still need human interaction.  While the degree of interaction necessary may vary based upon each individual’s preferred learning styles and personality type, that need still exists.  This is an interaction that generally can’t be replaced by games or other interactive components in e-learning programs.  Yes, many adults love the concept and process of self discovery, and some will excel greatly at absorbing information completely on their own, but most people need and desire human interaction.  We can’t forget this.

Some content areas are much more suited (read: ideal) for e-learning.  I recently began working with a company that has employees nation-wide.  E-learning is certainly the best structure to disseminate required programs such as business ethics and workplace harassment.  In fact, these programs were extremely well done.  They used a lot of audio, pictures, and knowledge checks throughout the programs.  They were designed to provide variety and appeal to the senses.  They were well structured and didn’t contain any of the cheesy videos many of us remember from previous iterations of these types of programs.  I can honestly say that I preferred these in an e-learning format over any previous classroom experience in the same subject areas I’ve ever had.

Why do programs like ethics and workplace harassment work very well in an e-learning format?  Because, if designed well, they require very little human interaction to facilitate the learning process.  There are programs that I have taught for many years, however, that MUST have human interaction, such as incident management and emergency planning topics.  I think the key here is that they are complex topics, with a lot of variables, and the real world execution of these topics requires team work and human interaction.  You can’t manage an incident inside a barrel nor can you write an emergency plan (a good one) without input from an entire team of people.  The instructors have to have experience in these areas and be subject matter experts that the learners can consult throughout the class.  Access to an SME helps the learners become more comfortable with the topic.  All this said, do these courses need to be delivered in a classroom environment?  Not necessarily.  We can still be interactive with others without being face to face.  It’s all about creativity, leveraging technology and other resources, and paying attention to the needs of our learners as well as the objectives of the courses themselves.

We have a number of distance learning options we can leverage, from webinars, to video teleconference, to chat room types of environments (and these can be highly integrated such as the ones used by educational institutions).  Does course participation (in whole or in part) have to be synchronous (the instructor is present with all learners at the same time) or can it be asynchronous (the instructor and learners can log in at different times, able to download and upload materials and leave messages for each other)?  It all depends on what needs to be accomplished.  Once again, as in previous blogs, I defer back to the needs assessment.  The data collected from the needs assessment will provide an astute instructional designer with information necessary to identify the delivery modes that would be appropriate for the learners.

With all the technology we have available to us, I think many learning organizations are being seduced into using e-learning platforms for everything.  E-learning and content management systems are very powerful and valuable tools, but can’t forget the human factor.  We need to be very careful with what we use and how we use it – and ensure that we are meeting the needs of our learners in the best way possible.  I encourage you to use caution and always consider what is best for the learner.

Power Restoration Post-Disaster: How Long is Too Long?

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Homeland Security Today ran an article reprinted from an AP article titled Power Outage Time After Sandy Not Extraordinary.  The article outlines an AP analysis of outage times from other hurricanes and storms and compares these to the duration of outages experienced by customers as a result of Hurricane Sandy.  To be honest, I’m not sure that the science behind this study is totally sound (it appears they compared only the duration of outages) as there are many factors involved in such a comparison to make it meaningful (such as type and age of infrastructure, damage to infrastructure, strength of hurricane, etc.).  That said, their apples to oranges comparison does lead to some legitimate statements.

I’m certainly not intending to diminish the issues associated with prolonged power outages.  For many it is an inconvenience (and we are extremely over reliant on electrical energy), but it does impact the health and well-being of a good portion of our population – especially in temperature extremes.  Through my experience in emergency management, however, it seems that many people are quite vocal about even the shortest of power outages.  These complaints quickly become political.  I even recall several years ago being pressured by a governor to ensure that power was restored prior to the Superbowl.  Yes, these things are important – practically and politically – but we also need to be realistic and understanding of the situation.

That situation comes down to the battle being fought by the utility companies.  Energy utilities are regulated, meaning that they are constantly bombarded by politicians and special interest groups.  Part of this regulation requires them to have disaster plans in place to address emergency outages and restoration.  With the experience of working 19 federally declared disasters, I’ve seen utility companies in action time and again – and to be completely honest, they impress the hell out of me.  They mobilize massive fleets of not only their own people, vehicles, and equipment but also those of other utility companies from far and wide as part of an elaborate and often used mutual aid system.  These crews need to be supervised, fed, housed, and supplied.  The logistics of power restoration is a massive undertaking – especially after a regional event such as Hurricane Sandy, where companies up the coast and throughout the northeast are all competing for the same resources – especially utility poles.

Utilities conduct restoration efforts in priority, first addressing urgent needs, such as hospitals and nursing homes, while also trying to effect repairs of their energy superstructure, such as primary distribution lines and substations.  After that, they need to literally examine every line in their system – with priority given to those that feed larger populations.  This takes time.  Consider that they are initially fighting lingering weather conditions and may be held back by additional foul weather such as heavy rains and high winds which can hinder their efforts and even set them back with additional damages.  After a storm, they are also working on clearing debris so they can safely access their infrastructure.  Combined, this is a lot of time, effort, and resources – all of which costs a lot of money.

There is no benefit to a utility company dragging their feet on a restoration effort.  Given the expenses and the negative press, they want to finish it as quickly as they possibly can.  Can they do it better?  Of course – there is always room for improvement.  The article says that “…Sandy caused 8.5 million power outages across 21 states, the highest outage total ever.”

The utility restoration effort found an unlikely ally – New Jersey Governor Chris Christie – who applauded their work.  A lesson other governors should probably learn.  Let’s work with them and support their efforts instead of being so quick to criticize.

Electric Grid Vulnerabilities

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Government Security News (GSN) just published an article (http://www.gsnmagazine.com/node/27833?c=infrastructure_protection) about the recent declassification of documents identifying that our electric grid is still vulnerable to terrorist attacks.  Really?  I’m not sure there needed to be a classified document in the first place.  The vulnerability of our grid should be pretty obvious.

The report was focused on the vulnerabilities to terrorist attacks – but thankfully did at least acknowledge that impacts can be caused by natural disasters (by the way, the lights are still out on Long Island).  Terrorist vulnerabilities absolutely do exist, though.  Our energy infrastructure is very open, physically and virtually.  Generally, power generation facilities have decent security – particularly nuclear power plants.  Security does drop notably with other facilities, especially hydro-generation plants, which should have the same measure of security as nuclear power plants as most of them are associated with a dam, which, if breached not only knocks out power generation but also is bound to impact a population catastrophically.

Most energy sub-stations are not staffed, and while there is passive security in place, such as fencing, these can obviously be overcome easily.  Utility lines stretch across our nation above and below ground – generally accessible with little trouble to people with malicious intent.  Remember that acts interrupting our grid may not necessarily come from Al-Qaeda, but can come from disgruntled locals as well.  Take a look at the pictures below.  These were actually taken by my father who worked for a utility company in New York State.  Shortly after these high power transmission lines were put up over 25 years ago, a local, in protest over these lines going through their land, actually unbolted the tower from the base.  They never caught the person who did it – but this is a federal crime – and taken very seriously by prosecutors and law enforcement, including security personnel of the utility companies.  This same transmission line passes through my property and my family and I have made several calls through the years to the security office of the utility company when we see people loitering around and taking pictures or notes on these towers.

 

 

 

 

 

 

 

 

 

 

 

 

In consideration of cyber attacks – guess what – they happen EVERY DAY!  Most, fortunately, are pretty weak and stopped well short of their goal.  Some do have some measure of success, penetrating fire walls and other defenses.  Some come from individuals domestically, but many are known to come from the likes of China, North Korea, and Iran – all of which ‘officially’ deny sponsoring such acts of terrorism.  Practically everything is controlled by a computer, and practically every computer is networked and accessible from the outside world by people who know how to do so.  Energy plants can be shut down, overloaded, or have safety protocols circumvented.  Scary stuff.

So what’s the result of all this?  Much more than the inconvenience of a short-term power outage, I can assure you of that.  Our energy grid is the most critical of our infrastructure.  Without it nothing works.  We’ve only scratched the surface of examples from the areas that were hit by Hurricane Sandy and still don’t yet have power.  It impacts our other critical infrastructures such as communications, hospitals, the economy, and others.  It breaks beyond discomfort and inconvenience when it endangers lives during periods of temperature extremes.  All in all we have an aging infrastructure in our nation, but not only do we need to work on replacing and improving it, we need to protect it.

Looking Ahead – Hazards of Concern in the US

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A multi-agency/discipline group called the National Homeland Security Consortium has released a white paper – Protecting Americans in the 21st Century: Priorities for 2012 and Beyond.  The paper highlights eight areas of concern requiring a national focus.

Sidebar – The entity called the National HOMELAND SECURITY Consortium has assembled a document that is clearly meant for the EMERGENCY MANAGEMENT community (a concept much broader and far-reaching than homeland security).  I really wish they would get this straightened out… and now back to your regularly scheduled blog…

The eight areas are as follows:

  • Cyber Hazards
  • Climate Change
  • Demands on Global Resources
  • Changing Demographics
  • Emerging Technologies
  • Violent Extremist Ideologies
  • WMD Proliferation
  • Mega-Hazards and Catastrophic Cascading Consequences

The Consortium has recognized and stresses in their white paper the hazard that is larger than any of these individually, and that is the potential for any of these hazards to interact or influence each other – an observation and warning that I feel is long overdue.  They are also not encouraging us to lose focus on the more immediate hazards we may have at hand, but are encouraging stakeholders and relevant parties to give some attention to these emerging hazards and consider how we will prepare for, mitigate against, respond to, and recover from their impacts.

I won’t comment on each of these items now, but reserve the right to do so in the near future.  I do, however, leave you with this… consider what impacts these hazards may have on you.

Marketing the Preparedness Message

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There are some great ideas in Jim McKay’s article – The Preparedness Message Isn’t Reaching the Public, featured in Emergency Management Magazine.  Just like any good marketing campaign, we have to push with multiple strategies.  Billboards and television campaigns are great but they aren’t going to hit home with everyone.  We need to be more creative in our approach.  Our methods will resonate differently with various people.  The CDC’s zombie campaign got a lot of attention (see my blog post on it!).  Why?  Because they not only used something trendy, they considered their audiences.  Not all audiences respond to the zombie campaign; some think it’s ridiculous – but they were able to engage a lot of people.  Different people require different methods.  Once you reach an audience, then you can convey a message.  Preparedness is boring, let’s face it.  We need creative and diverse solutions to reach and engage audiences.

The CDC’s Zombie Banner

 

 

 

There are four major challenges we’re facing when it comes to preparedness that I speak about in presentations.  These are many of the thoughts of many folks when it comes to disasters:

1) It’s not going to happen here.

2) It’s not going to be that bad.

3) There is nothing I can do about it.

4) Government will take care of me.

These aren’t rocket science, but they can be tough nuts to crack – especially when we don’t want to be the ‘doom and gloom’ people.

Let’s look at what has worked.  McKay’s article mentions coupons to Target for preparedness kits.  This is an effective methodology that has worked well for years in California and other places around the country.  In Central New York, where I’m from, a county health department capitalized creatively on a point of distribution exercise to get the beginnings of preparedness kits in the hands of residents.  The 300 slots they had available filled very quickly.  The event got great press and all positive comments from those who participated.  Good or bad economy, people like free or discounted things.  The lesson learned here is to get preparedness underwritten.  Be it by grant funds or corporate sponsors.  If Pepsi wants to put out a preparedness kit, so be it.

Protecting NYC

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This NBC News article brings about some great discussion and ideas on what can be done to protect areas like New York City from storm surge.  If you link to the article, be sure to watch the video.

Gates of a fictional seawall protecting NYC

First, I’ll put out there that I don’t completely agree with all the statements made in the article or the video.  I’m not completely sold on global climate change, but the fact of the matter is that near or below sea level areas on the coast, especially those with high populations, need better protection.  I also don’t agree with the scientist in the video that states there would have been no damage in NYC had these sea walls been in place… hurricane force winds and torrential rains cause plenty of damage all on their own.

The concept of these sea walls amazes me.  I’m certainly familiar with the smaller cousins of these structures, breakwaters, such as the one in my college town of Oswego, NY.  These sea walls, however, particularly the more high-tech versions such as the one illustrated for use around New York City in the video, appear to be extremely versatile and suitable for long-term use.  Just like we protect our infrastructure from acts of terrorism, we need to protect our infrastructure, and our people, from natural disasters.  If this project sees the light of day, it may very well be one of the largest hazard mitigation projects ever created.

Business Civic Leadership Center and Emergency Management

Tim Riecker, The Contrarian Emergency Manager Leave a comment

This morning I received my semi-regular e-mail update from the Lessons Learned Information Sharing (LLIS) folks at the US Department of Homeland Security.  If you are in the EM/HS field and are not on LLIS, I strongly encourage you to do so.  It’s a great community of practice, facilitating the sharing of lessons learned and best practices in the field.  One document that was listed in the e-mail was The Role of Business in Disaster Response.  This document outlines case studies and best practices of businesses supporting all aspects of emergency management nationally and locally.  It was published by the Business Civic Leadership Center of the US Chamber of Commerce.  Admittedly, I was not aware of this office within the US Chamber, nor was I aware of their Disaster Program, which offers some great resources to businesses. 

I’ve blogged in the past about the importance of public-private partnerships in emergency management and the incredible positive impacts it can have.  Wal-mart, in particular, has gotten a lot of good press about their emergency business operations, and more recently since Hurricane Sandy I’ve seen some media attention given to other companies such as Home Depot, highlighting their emergency operations centers and their relief efforts.  In a presentation I saw from Wal-Mart a while back, the company highlighted three priorities in regards to emergency management: 1) take care of its people, 2) take care of its operations, 3) take care of its communities.  Just these three priorities say a lot about the company.  They realize their people are their most important assets.  Next, they strive to ensure business continuity.  Lastly, with their business operations now being able to support it, they take care of the communities they have a presence in.  What a great business model!

The integration of the private sector into emergency management needs to be at all levels.  The National Operations Center (NOC), run by the US Department of Homeland Security, includes private sector representatives.  How can this be improved?  At the state level, many states either include private sector representatives in the State Emergency Operations Center or have a separate but connected Business Operations Center, solely focused on the coordination of private sector efforts.  Both of these options help expedite private sector resources to emergency management efforts – especially when used as an extension of the EOC’s supply unit.  There is also a recognized expertise between private sector and public sector emergency managers.

County and local emergency management programs can also benefit.  Where national and international companies are usually found at the NOC and state EOCs, the local management of these chains can work with county and local EOCs.  Also, don’t discount the value of small businesses in the area.  They, too, have a wealth of knowledge and access to resources.  Every community should form a disaster business alliance of some sort, or welcome private sector involvement with local VOADs.  You can work with local chambers of commerce to make this happen.  I’ve established a great relationship between my company, Emergency Preparedness Solutions, with my local chamber of commerce and have been providing information to members on emergency preparedness and business continuity through meetings and articles, as well as a presentation that I’ll be doing in a few months.

Never think that emergency management is too big of a concept for your local community.  It’s not just something done by FEMA or by the state.  In a disaster we need to help our neighbors and our communities.  The biggest impact is always locally.  Establish those relationships now and make a difference!