step 2: understand the situation

EMERGENCY MANAGEMENT DIVISION“A disaster ready and resilient Washington State”

POC: Jacob Rain; Phone 253-512-7154; [email protected]

Streamlined Planning

Jacob RainState Emergency Planner

Washington Military Department, Emergency Management Division

mailto:[email protected]


Agenda

What is a "Comprehensive Emergency Management Plan (CEMP)?"

Planning Basics

Planning Process

Using Core Capabilities to Facilitate Planning and Operations

Plan Structures

2POC: Jacob Rain; Phone 253-512-7154; [email protected]




EOP/CEMP Relationship and Fundamentals

3

Incident Annexes

(Tsunami, etc.)

Supporting Annexes

(ESFs, Dept., Functional)

Basic PlanCEMP

Emergency Operations Plan

“The ongoing plan maintained by various jurisdictional levels for responding to a wide variety of

potential hazards. It describes how people and property will be protected; details who is responsible

for carrying out specific actions; identifies the personnel, equipment, facilities, supplies, and other

resources available; and outlines how all actions will be coordinated.”

Comprehensive Emergency Management

“Governments can discharge their emergency management responsibilities by taking four interrelated

actions: mitigation, preparedness, response, and recovery. A systematic approach is to treat each

action as one phase of a comprehensive process, with each phase building on the accomplishments of

the preceding one.”Comprehensive Emergency Management Plan

No definition provided.

EOPComprehensive

Emergency Management

CEMP



Remember, this definition was BEFORE

the publishing of the 5 Mission

Areas of the National

Preparedness Goal in 2011



EOP (CEMP) Components



Types of Supplemental Documents

ANNEX APPENDIX ATTACHMENT ADDENDUM

Supplementary material

attached at the end of a

document

Addition to a document;

contains extra information

• Contains new information

• Contains information that was not available at

the time of the writing

• Can correct something in the original work,

update information or provide an explanation

Can stand alone as a

document

May not be able to stand

alone as a document

May be a standalone

document

May be longer than an

appendix

May not be as long as an

annex

Refers to a section of

subsidiary matter at the end

of a document

Refers to items or

documents which are

appended to the main

document



General Structure of a Plan• Purpose

• General statement of what the plan is meant to do

• Situation Overview• Summary of the hazards faced by the plan to determine its capabilities and limitations

• Concept of Operations• Provides an overall picture of how the plan accomplishes a set of objectives to reach a

desired end-state

• Ideally, it offers clear methodology to realize the goals and objectives to execute the plan

• Organization• Discusses the structures of the organizations outlined within the plan

• Direction, Control, and Coordination• Provides information on how other plans nest into this plan

• Information Collection, Analysis, and Dissemination• Discusses the essential information needed and the information process

• Responsibilities• What does each organization do in this plan, and why does it matter?





Basic Planning Guidance



• Provides Federal Emergency Management Agency (FEMA) guidance on the fundamentals of planning and developing emergency operations plans (EOP).

• Version 2.0 of this Guide expands to show that EOPs are connected to planning efforts in the areas of prevention, protection, response, recovery, and mitigation.

• Provides guidance for conducting a Threat and Hazard Identification and Risk Assessment (THIRA) and Stakeholder Preparedness Review (SPR).

• The 3rd Edition includes both the THIRA and SPR because they are interconnected processes that, together, communities use to evaluate their preparedness. The THIRA includes standardized language to describe threat and hazard impacts and capability targets.

https://www.fema.gov/media-library/assets/documents/165308






6 Step Planning Process: Brief Overview





CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team

Step 2:Understand the

Situation

Step 3:Determine

Goals & Objectives

Step 4:Plan Development

Step 5:Plan

Preparation, Review, & Approval

Step 6:Plan

Implementation & Maintenance

CP

G 2

01

THIRA Process

Step 1:Identify

the Threats & Hazards of Concern

Step 2:Give the

Threats & Hazards Context

Step 3:Establish Capability

Targets

SPR Process

Step 1:Assess Capabilities

Step 2:Identify & Address

Capability Gaps

Step 3:Describe Impacts of Funding

Sources

Planning, THIRA, SPR Process Relationship





Step 1: Build a Planning TeamWhy build a planning team?

• Most plans are written in a vacuum, without the input from those with the responsibilities

• Even if stakeholders are engaged, it’s passive – meaning they might provide input by reviewing a document and adding comments

THIS IS NOT ENOUGH!This approach misses the fundamental purpose of building a planning team…

• Get to know your stakeholders and partners• Have open and honest discussions on capabilities and limitations• Learn and connect in real-time to capture and document in the Plan

The Result???• A Plan that accurately reflects what each stakeholder does – meaning the

Plan does not “go out the window” once an incident occurs because it describes what tasks and actions are truly unfolding

Only when a Plan is built from an active Planning Team will you have a better understanding of your capabilities/gaps and be able to find better ways to improve and work together towards our common

goals.



Purpose

Situation Overview

Concept of Operations

Organization

Direction, Control, Coordination

Information Collection, Analysis, Dissemination

Responsibilities

Where in the Plan?



CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team


Situation

Step 3:Determine

Goals & Objectives


Step 5:Plan


Step 6:Plan


CP

G 2

01

THIRA Process

Step 1:Identify


Step 2:Give the



Targets

SPR Process



Capability Gaps


Sources






A problem-solving approach that involves:

• Identify hazards that can affect your jurisdiction• Natural

• Technological

• Adversarial or Human-caused

• Assessing Risks• Helps identify the

vulnerabilities and analyze the potential consequences of these threats



Purpose

Situation Overview


Organization



Responsibilities

Step 2: Understand the SituationNATURAL TECHNOLOGICAL HUMAN-CAUSED

:Acts of nature.:Accidents or the

failures of systems and structures.

:The intentional actions of an

adversary.

Avalanche Dam Failure Active Shooter

Drought Hazardous Materials Armed Assault

Earthquake Industrial Accident Biological Attack

Epidemic Levee Failure Chemical Attack

Flood Mine AccidentCyber-Attack against

Data

Hurricane/Typhoon Pipeline ExplosionCyber-Attack against

Infrastructure

Space Weather Radiological Release Explosives Attack

Tornado Train DerailmentImprovised Nuclear

Attack

Tsunami Transportation Accident Nuclear Terrorism Attack

Volcanic Eruption Urban Conflagration Radiological Attack

Winter Storm Utility Disruption

Where in the Plan?



State of Washington Hazard ProfileThe Washington State Enhanced Hazard Mitigation Plan – Risk Assessment

includes:



Purpose

Situation Overview


Organization



Responsibilities

Where in the Plan?




13

CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team


Situation

Step 3:Determine

Goals & Objectives


Step 5:Plan


Step 6:Plan


CP

G 2

01

THIRA Process

Step 1:Identify


Step 2:Give the



Targets

SPR Process



Capability Gaps


Sources





1. Life Safety

2. Incident Stabilization

3. Property Protection

4. Environmental Protection

Step 3: Determine Goals and Objectives

Base goals and objectives on: • Needs in responding to and recovering from

hazards.• Hazard-, response-, and constraint-generated

demands.Restate needs and demands as:• Operational Priority

• Incident priorities initially established by leadership and are reviewed or modified as required, during each operational period, to help clarify the order of importance of incident objectives*.

• Response Goal• Define the intent of leaders, in general terms, with

regard to the most important things that must be accomplished. They are generally expressed in terms of the core capabilities defined in the National Preparedness Goal*.

• Intermediate Objectives• Define what must be accomplished to achieve the

priorities and based on best knowledge of the current situation and the resources available*.



Purpose

Situation Overview


Organization



Responsibilities

Don’t we have this

already???

*Minor adaptation from page 19 of the FEMA Incident Action Planning Guide, 2012

Where in the Plan?



Operational Priorities, Goals, and Objectives

15

Introduction to the operationalization of Core Capabilities

• Core Capability• “Capabilities are the means to accomplish a mission, functions, or objective

based on the performance of related tasks, under specified conditions, to target levels of performance. The most essential of these capabilities are the core capabilities identified in the National Preparedness Goal.” - National Preparedness Goal

• Critical Tasks• Key tasks necessary for the delivery and execution of the core capability

FEMA Core Capability Development Worksheets:https://www.fema.gov/media-library-data/1539717874998-

ea2967ed01ff81fd04f9f1d2a6ad71f5/0_ALL_v25.pdf



Purpose

Situation Overview


Organization



Responsibilities

Where in the Plan?

https://www.fema.gov/media-library-data/1539717874998-ea2967ed01ff81fd04f9f1d2a6ad71f5/0_ALL_v25.pdf




16

Core Capability

Name

Core Capability’s Description

Critical Task(s) to

Achieve Core Capability






17

Core Capability

(can be categorizedby Priority)

Description (Goal)

Critical Tasks (Objectives)






18

Example:

•Operational Priority

•Response

Goal

• Intermediate

Objective

• Life Safety

• Property Protection

• Incident Stabilization

• Environmental Protection

• Provide transportation (including infrastructure

access and accessible transportation services) for

response priority objectives, including the evacuation

of people and animals and the delivery of vital

response personnel, equipment, and services into the

affected areas.

• Clear debris from any route type (i.e., road, rail,

airfield, port facility, waterway) to facilitate response

operations.

* Simply add a timeframe, or break these objectives

(critical tasks) down into activities or strategies.



Purpose

Situation Overview


Organization



Responsibilities

Where in the Plan?





Purpose

Situation Overview


Organization



Responsibilities

Why Use Core Capabilities and Critical Tasks as Operational Goals and Objectives?

Priority: Life Safety (usually not listed directly on the form)

Goal(s): Core Capability Name (links description to the goal)

Objective(s): Critical Task, with added timeframe and details

Continued EXAMPLE from previous slides…Goal(s): Critical Transportation

Objective(s): Critical Task #3 - Clear debris from [insert route or type] within 12 hours

Core Capability and Critical Task integration into each Annex of the Plan

Determines WHO is capable of contributing to the objective and what to expect from that entity (i.e. Dept. of Transportation)

Where in the Plan?




20

CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team


Situation

Step 3:Determine

Goals & Objectives


Step 5:Plan


Step 6:Plan


CP

G 2

01

THIRA Process

Step 1:Identify


Step 2:Give the



Targets

SPR Process



Capability Gaps


Sources





Step 4: Plan DevelopmentPlan Development Functions:

1. Develop and analyze course(s) of action (COA).

2. Identify resources.

Planning concepts for developing a COA:

• Scenario based analyzes impact of a scenario.• What would you do when this specific incident occurs?

• Functional identifies the common tasks performed during emergencies.

• What could you do in support of a specific function (e.g. debris clearance)?

• Capabilities based focuses on capacity to take a course of action.• What can you do in connection to the outlined Critical Tasks?

Experienced planners may use a combination of these developmental concepts.



Purpose

Situation Overview


Organization



Responsibilities

Where in the Plan?




22

CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team


Situation

Step 3:Determine

Goals & Objectives


Step 5:Plan


Step 6:Plan


CP

G 2

01

THIRA Process

Step 1:Identify


Step 2:Give the



Targets

SPR Process



Capability Gaps


Sources





Step 5: Plan preparation, review, and approval involves:

1. Writing the plan.

2. Review the plan.

3. Approve and disseminate the plan.



Purpose

Situation Overview


Organization



Responsibilities

Step 5: Plan Preparation, Review, and Approval

Where in the Plan?

Incident Annexes

(Tsunami, etc.)

Supporting Annexes


Basic PlanCEMP

Writing the Plan• Choose a structure

• Integrate Core Capabilitiesand Critical Tasks into chosen structure

• Connect Critical Tasks to Courses of Action (COA), a.k.a. Responsibilities



Traditional/Functional EOP Format

Functional annexes document the methods, procedures, and actions of critical operational functions.



Incident Annexes

(Tsunami, etc.)

Supporting Annexes


Basic PlanCEMP

Functional Format

Alerts & Warning Debris RemovalWater Treatment

& ProvisionSanitation

Supply Chain Restoration

Power Restoration

Decontamination Body RecoveryMortuary Services

Victim Identification

Structural Firefighting

Resource Management

ShelteringResource

DistributionRelocation Assistance

Rescue Operations

Search Operations

Securing Disaster Areas

Emergency Medical Services

Resource Tracking

Delivering Situation Reports

EvacuationContinuity Planning

Protecting Sensitive

Information

Airspace Management

Bereavement Counseling

Family Reunification

Wildland Firefighting

Donations Management

Emergency Power

Provisioning

Data Communications

Voice Communications

Medical SurgeInformation

AnalysisHazMat Clean-up Feeding

Synchronizing Operations

Infrastructure Assessments

Triage & Initial Stabilization

HydrationVolunteer

ManagementAccess & Re-

Entry



Agency/Department-Focused EOP Format

Agency/Department annexes describe the capabilities and limitations of each specific entity involved in an incident.



Incident Annexes

(Tsunami, etc.)

Supporting Annexes


Basic PlanCEMP

Department Format


(EM)Police Fire

Public Works / Utilities (PUD)

Parks & Recreation

LegalHuman

Resources (HR)

Public Health

TransportationInformation Technologies

(IT)Hospital …



Emergency Support Functions (ESF) EOP Format

ESF annexes are the categorization of common incident functions based on similar resources.



Incident Annexes

(Tsunami, etc.)

Supporting Annexes


Basic PlanCEMP

ESF Format

ESF 1Transportation

ESF 2Communications

ESF 3Public Works &

Engineering

ESF 4Firefighting

ESF 5Information &

Planning

ESF 6Mass Care, Emergency Assistance, Temporary Housing, &

Human Services

ESF 7Logistics

ESF 8Public Health &

Medical Services

ESF 9Search & Rescue

ESF 10Oil & Hazardous

Materials Response

ESF 11Agriculture &

Natural Resources

ESF 12Energy

ESF 13Public Safety &

Security

ESF 14*Cross-Sector Business and Infrastructure

ESF 15External Affairs

*Based on upcoming publication of the National Response Framework, 2019.



How am I supposed to coordinate resources and overall operations if not aligned to the same exact Plan structure?

• When Core Capabilities are integrated into planning efforts, your operations and resources align to those capabilities

• You no longer request coordination or resources with a specific ESF or Department, you request a CAPABILITY and coordinate through tasks instead of assumptions…

• Example:• One political subdivision’s ESF 3 (Public Works and Engineering) performs the “debris clearance of any

route type” Critical Task of the Critical Transportation Core Capability• The neighboring political subdivision’s ESF 1 (Transportation) is assigned the responsibility of

performing that same Critical Task

The assumption is that one political subdivision’s ESF 3 will reach out to their neighboring ESF 3 in the hopes of receiving assistance, but the reality is this generates numerous lines of confusion on both

ends.

We are already operating under false assumptions.

Instead, with a proper planning process and plan integration (dissemination), the Core Capabilities and Critical Tasks allow us to use a structure that works best for

our individual organizations without sacrificing operational coordination.

Core Capabilities and Operational Coordination







2. Review the plan.





Use the CPG 101 Process Analysis Support Tool:• Tracks each plan component throughout the 6-step planning process• Asks basic questions on a 1-5 scale about how each reviewing

stakeholder feels about the plan or component


Planning Team

Any Others with a Responsibility in the Plan

Any Political Subdivisions Covered under the Plan

WA EMD






CPG 101’s Five Basic Plan Criteria:

• Scored 1-5 based on Plan content

Link on next slide



EOP (CEMP) Review Criteria

30

• Review Criteria Tools:

• CPG 101, Version 2.0 – Process and Analysis Support Tool – March, 2011

• https://www.fema.gov/pdf/about/divisions/npd/CPG_101_v2_past.pdf

• Use this tool to document your local planning and review process

• Each section of the plan can be reviewed by this criteria, as well as an

overall plan review

• Simply provide this tool to each of your stakeholders to see how everyone

believes the plan performs

• WA State Tiered CEMP Evaluation Checklist

• Tier III – Lawful Requirements; all CEMPs must contain the elements

identified in this tier in accordance with federal and state laws as an

emergency management organization

• Tier II – State Suggestions; while not required, the state suggests

implementing these Tier II elements to support a coordinated state-wide

emergency management effort

• Tier I – Optional Pursuits; meant to promote state-level engagement in

jurisdictions’ organizational goals

• Contact WA EMD’s Emergency Planners at: [email protected]



https://www.fema.gov/pdf/about/divisions/npd/CPG_101_v2_past.pdf






2. Review the plan.





All the CPG 101 Analysis Tools

WA EMD’s Review

EmergencyManagement

Office

Local Approving

Authority(s)

Planning Team Recommendations

EmergencyManagement

Office

Neighboring Political

Subdivisions

• The Basic Plan’s audience is the Public, Senior Elected Officials, and Department Heads – so the Plan must at least be sent to those entities.

• There are information protection laws and classifications for information related to the Prevention and Protection Mission Areas, as needed; however, that information should stay out of the Basic Plan so it can be obtained by the public (as a member of its main audience).




32

CP

G 1

01

Planning Process

Step 1:Form a

Collaborative Team


Situation

Step 3:Determine

Goals & Objectives


Step 5:Plan


Step 6:Plan


CP

G 2

01

THIRA Process

Step 1:Identify


Step 2:Give the



Targets

SPR Process



Capability Gaps


Sources





Step 6: Plan Implementation and Maintenance

Planning

•6-Step Planning Process

Organize & Equip

•Grant Funds to Fill Gaps

Training

•Teach People the Plan

Exercise (Respond)

•Assess Gaps in the Plan

•Develop Corrective Actions

Update & Revise

•Add/Modify/Retract Information to

Accurately Reflect the Program



• Plans help to define the meaning of success based upon the current capabilities and gaps of the organization.

• Personnel are organized and equipped to successfully carry out the details of the plans.

• Personnel are trained to succeed as identified by the plans.

• Plans are exercised so personnel identify previously uncaptured capabilities and gaps.

• The outcomes of the exercise/response are examined, and corrective actions are identified, to build upon those capabilities or bridge identified gaps.

• Plans undergo updates and revisions to more accurately reflect the capabilities and gaps as they are discovered.

• Plans help to redefine the meaning of success by improving capabilities while reducing gaps.



34


Jacob RainState Emergency Planner

Washington Military Department, Emergency Management Division

Phone: 253-512-7154; [email protected]

[email protected]

