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An Introduction to Emergency
Exercise Design and
Evaluation
An Introduction to Emergency
Exercise Design and
Evaluation
Second Edition
Robert McCreight
Lanham, MD
Published in the United States of America
by Bernan Press, a wholly owned subsidiary of
The Rowman & Littlefield Publishing Group, Inc.
4501 Forbes Boulevard, Suite 200
Lanham, Maryland 20706
Bernan Press
800-462-6420
www.rowman.com
Copyright © 2017 by Bernan Press
All rights reserved. No part of this publication may be reproduced, stored in a
retrieval system, or transmitted in any form or by any means, electronic,
mechanical, photocopying, recording, or otherwise, without the prior permission of
the publisher. Bernan Press does not claim copyright in U.S. government
information
ISBN 978-1-59888-892-8 (cloth : alk. paper)
ISBN 978-1-59888-893-5 (ebook)
The paper used in this publication meets the minimum requirements of
American National Standard for Information Sciences—Permanence of Paper for
Printed Library Materials, ANSI/NISO Z39.48-1992.
Manufactured in the United States of America.
Contents
Preface
Introduction
1 Emergency Exercises: Objectives and Purpose
2 Essential Exercise Design Elements and Steps
3 Issues in Exercise Design
4 Exercise Organization and Structure
5 Exercise Control and Management
6 Exercise Evaluation Principles
7 Exercise Evaluation Issues
8 Exercise Design Considerations
9 Summing It Up
Appendix A: Glossary
Appendix B: Evaluation Guides
Appendix C: MSEL Sample
Appendix D: Tackling Tabletop Exercises: Looking at the
Fundamental Issues
Appendix E: Useful Resources
Appendix F: Information Sharing and Message Management
Bibliography
Index
About the Author
Preface
Revisions to the first edition after its publication in 2011 have been
undertaken with the aim of including new material, updates, and
additional observations. In this instance I continue to advocate more
complex scenarios and situations which feature high risk threats
should be the focus of emergency exercises in the second and third
decade of the twenty-first century. This can only be done by
explicitly examining these challenges through the conduct of robust
exercises. By drawing attention to unique exercise design issues at a
significantly sharper level of detail my objective in supplementing the
text is designed to help practitioners and students of emergency
management understand obvious, subtle and indirect aspects of the
exercise design process.
In the decades following 2015 there will be increased pressure on
state and local governments to demonstrate that ramped up and
enhanced emergency performance in response and recovery
operations has benefited from prior years of experience. Well-crafted
exercises can deliver on this expectation. The sheer variety of
emergency challenges include natural disasters, industrial and
infrastructural accidents, system failures, and terrorism.
Communities should be prepared for any scenario from the simplest
to the most complex and challenging.
However, not all are enthusiastic about exercises providing the
“magic bullet” to enhance overall performance. Some remain
doubtful that exercises alone can strengthen emergency response.
Today some hesitance remains about sharing insights and lessons
learned from similar tabletops, drills and sophisticated deployed
exercises doubtful that such events can impart operational wisdom
and applicable insights which focus on the multiplicity of operational
issues involved. This regrettably remains true in the international
arena as well. One goal of this book is to encourage wider sharing of
exercise outcomes and insights to the benefit of all engaged in the
serious pursuit of better emergency management.
More must be done to share perspectives and isolate key
operational principles where possible so that real savings in lives and
property can be attained. As such, efforts will be made in this new
edition to focus on relevant subjects and themes which are
compelling and rightly deserve some further discussion, analysis and
elaboration such as these topics which merit attention via crafted
emergency exercises that primarily focus on and deal with:
• Continuity of operations
• Dealing with WMD events
• Mass casualty disasters
• Infrastructure emergencies
• Unified command
• Homeland defense
• Business continuity planning
• Complex catastrophic emergencies
• Cybersecurity emergencies
• Energy grid collapse crises
• Agrosecurity crises
• Sustained and stressed emergency operations
New language and selected text inserts will aim to underscore where
these diverse issues, subjects and themes can best be dealt with
inside the overall context of emergency exercise design and how
these items might affect approaches to exercise evaluation activities.
In most situations, well-designed exercises will clarify and enhance
the specific functions, roles, tasks and activities which will likely
unfold in the midst of an actual emergency and thereby shine a light
on which key behaviors, decisions, interventions and
communications will ultimately prove to strengthen and upgrade the
overall level of emergency response.
Chapter 1
Emergency Exercises
Objectives and Purpose
NOTES
1. Spencer S. Hsu, “National disaster exercises, called too costly and scripted, may
be scaled back,” Washington Post, April 2, 2010: A01.
2. Tracy Knippenburg Gillis, Emergency Exercise Handbook: Evaluate and Integrate
Your Company’s Plan (Tulsa, OK: Penwell Books, 1995); Public Health Emergency
Tool-kit, available at:
www.nursing.columbia.edu/pdf/PublicHealthBooklet_060803.pdf.
Chapter 2
Essential Exercise Design Elements
and Steps
Let’s take a closer look at the actual exercise design process and
break down its component parts to confirm our understanding of
what needs to take place and the significance of the order of events
that allows the exercise designer to have confidence that they have
produced a worthwhile product. What matters most in the initial
phase of exercise design is an appreciation for realism and the fact
that emergency responders really want to have their training
validated by undergoing a rigorous and authentic test of their overall
preparedness. Placing these skilled responders in a situation that
actually demonstrates they are ready to perform the emergency
tasks expected of them pushes them to a level of progressive
professionalism where their confidence in performing the emergency
mission assigned becomes a reinforcing element critical to their basic
skills and training. The sense of pride and accomplishment derived
from a well-run exercise allows emergency responders to publicly
and openly affirm their special expertise in a way that also
strengthens team performance and esprit de corps. The steps
summarized in the chart below outline the most important aspects of
exercise design and should be followed carefully.
Here the first step entails review of the emergency plan itself, and
this would include a review of prior exercises; an in-depth look at
prior exercise evaluations and AARs; review of LLIS documents; and
the solicitation of outside expert views to identify the actual
strengths, weaknesses, performance issues, and problems that have
arisen in prior exercises. Without this, starting from scratch with no
prior history or insight, the emergency manager has to determine
which critical emergency functions need to be tested to establish a
fair baseline of emergency response performance.
The second step involves identification of specific capability needs
or shortfalls based upon known or suspected gaps in mission
performance that need to be strengthened or improved as well as
selection of a competent design team to help identify which tasks,
functions, behaviors, and other activities must be included in the
exercise to demonstrate that identified problems, shortfalls, or
weaknesses are properly addressed. This design team will take
responsibility for ensuring that key tasks and functions, or
equipment operations and problem solving events, are part of the
foundation of the exercise, and they will be instrumental in
specifying what realistic training and situational challenges ought to
be in the exercise itself. An important aspect of this step is to
examine new threats and risks to the community, as well as
historical emergency data, to ascertain whether the needs and
issues to be exercised ought to incorporate these elements.