&EPA
United States
Environmental Protection
Agency
Air And Radiation
(6602J)
EPA 402-R-99-006
June 1999
Radiological Exercise Planning
Manual
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ENVIRONMENTAL PROTECTION
AGENCY
RADIOLOGICAL EXERCISE PLANNING
MANUAL
June 30,1998
U.S. Environmental Protection Agency
Office of Radiation and Indoor Air
Washington, DC
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Section Page
TABLE OF CONTENTS iii
LIST OF FIGURES vi
LIST OF TABLES vi
I WHAT IS THE PURPOSE OF THIS MANUAL? 1-1
II WHAT IS THE LEGAL BASIS FOR AN EPA RADIOLOGICAL
PREPAREDNESS EXERCISE PROGRAM? II-l
A. EPA Radiological Emergency Response Plan (EPA RERP) IM
B. National Oil and Hazardous Substances Pollution Contingency
Plan (NCP) II-l
C. Federal Radiological Emergency Response Plan (FRERP) II-l
D. Federal Response Plan (FRP) II-l
E. Executive Order 12656 (EO-12656) II-2
F. Federal Emergency Management Agency (FEMA)
Rule 44 of the Code of Federal Regulations (CFR) Part 351
(44 CFR 351) II-2
III WHY HAVE AN EPA RADIOLOGICAL EXERCISE PROGRAM? HI-1
IV WHAT ARE THE DIFFERENT TYPES OF EXERCISES? IV-1
A. Tabletop Exercises (TTXs) IV-1
B. Command Post Exercises (CPXs) IV-2
C. Field Exercises (FXs) IV-3
V WHAT IS THE PROCESS FOR DEVELOPING AN EXERCISE? V-l
A. Selection of a Chief Exercise Planner V-l
B. Chief Exercise Planner V-l
C. Contract Development and Management V-l
D. Select an EPA Exercise Design Team V-2
E. Exercise Design Team V-2
F. Selection of an Exercise Site V-2
G. Exercise Schedule V-4
H. Establish Exercise Objectives and Extent of Play V-5
I. Establishment of Working Groups V-5
J. Establish Exercise Ground Rules V-7
Section Page
111
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VI WHAT CONFERENCES ARE CONDUCTED? VI-1
A. Initial Concept Conference (ICC) VI-1
B. Initial Meeting with Federal, State, and Local Governments VI-1
C. Initial Planning Conference (IPC) VI-2
D. Site Survey and Scenario Development Conference VI-3
E. Scenario Review and Inject Development Conference VI-4
F. How Injects Work on Field Play VI-5
G. Inject Review and Logistic Planning Conference VI-5
H. Logistics Review Conference VI-7
I. Dry Run of the Scenario VI-7
J. Final Planning Conference VI-7
VII WHAT TYPE OF DOCUMENTS ARE DEVELOPED? VII-1
A. Exercise Timeline VII-1
B. Security Classification Guide VII-2
C. Exercise Plan (EXPLAN) VII-2
D. Organization Emergency Response Procedures VII-2
E. Controller Handbook VII-2
F. Players Guide VII-2
G. Accident/Incident Description VII-3
H. Communications Directory VII-3
I. Site Restoration Guide/Site Restoration EXPLAN VII-3
J. After-Action Report (AAR) VII-3
VIII WHAT TRAINING AND ORIENTATION IS CONDUCTED? VIH-1
A. Controller Training VIII-1
B. Player Orientation VIII-2
C. Accident/Incident Simulation Cell Orientation VIII-2
D. Media Simulation Cell Orientation VIII-3
E. Washington (DC) Area Orientation VIII-3
IX HOW DO YOU CONTROL AND CONDUCT THE EXERCISE? IX-1
A. Exercise Director IX-1
B. Chief Exercise Planner IX-2
C. Chief Functional Area Controllers IX-2
D. Controller Assignment/Duties IX-2
E. Starting the Exercise IX-2
Section Page
IV
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F. Daily Exercise Operations IX-3
G. All Controllers IX-3
X WHAT HAPPENS AFTER THE EXERCISE? X-l
A. Debriefing X-l
B. Site Cleanup X-l
C. Followup Activities X-l
Annex Page
A EXERCISE PLANNING POINTS OF CONTACT A-l
B ABBREVIATIONS AND ACRONYMS B-l
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Figure Page
1 Suggested Layout for a TTX IV-2
Table Page
1 Exercise Characteristics IV-4
2 Considerations When Selecting a Site for an FX V-3
3 Recommended Exercise Schedule V-5
4 Recommended Initial Exercise Design and Development Actions Timeline V-9
5 Recommended Conferences Timeline VI-1
6 Recommended Logistics Timeline VI-6
7 Recommended Administrative Actions to Do Before and After a
Conference Timeline VI-8
8 Recommended Timeline for Publishing Documents VII-1
9 Recommended Final Readiness Timeline VIM
10 Recommended Training/Orientation Sessions Timeline VIII-1
11 Recommended Conduct of Exercise Timeline IX-1
12 Recommended Post-Exercise Administrative Actions Timeline X-2
VI
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SECTION I
WHAT IS THE PURPOSE OF THIS MANUAL?
This manual provides the Environmental Protection Agency (EPA) Office of Radiation and
Indoor Air (ORIA) guidance for planning, developing, and executing a radiological or nuclear
accident/incident response exercise. The manual:
• Emphasizes the value of exercising in testing and improving emergency plans and
training emergency response personnel.
• Provides pointers for selecting the appropriate exercise type and exercise objectives.
• Serves as a reference and planning guide for anyone involved in the coordination of a
radiological exercise and planning guide for training events.
The manual comprises 12 major sections.
• Section I: What Is the Purpose of This Manual?
• Section II: What Is the Legal Basis for an EPA Radiological Exercise
Preparedness Program?
• Section III: Why Have an EPA Radiological Exercise Program?
• Section IV: What Are the Different Types of Exercises?
• Section V: What Is the Process for Developing an Exercise?
• Section VI: What Conferences Are Conducted?
• Section VII: What Type of Documents Are developed?
• Section VIII: What Training and Orientation Is Conducted?
* Section IX: How Do You Control and Conduct the Exercise?
• Section X: What Happens After the Exercise?
• Annex A: Exercise Planning Points of Contact
• Annex B: Abbreviations and Acronyms
1-1
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SECTION II
WHAT IS THE LEGAL BASIS FOR AN EPA RADIOLOGICAL
EXERCISE PREPAREDNESS PROGRAM?
The EPA Radiological Exercise Preparedness Program is being developed to support EPA's
responsibilities as delineated in the following Federal regulations, plans, and Executive Orders
(EOs) that stipulate the requirements for the EPA Radiological Exercise Program.
A. EPA RADIOLOGICAL EMERGENCY RESPONSE PLAN (EPA RERP)
The EPA Radiological Emergency Response Plan provides guidelines for EPA to respond
to a radiological accident/incident. The plan tasks the EPA Radiological Emergency Response
Team (RERT) and potentially other emergency response members to participate periodically in
radiological accident/incident exercises.
B. NATIONAL OIL AND HAZARDOUS SUBSTANCES POLLUTION
CONTINGENCY PLAN (NCP)
The NCP provides the organizational structure and procedures for preparing for and
responding to discharges of oil and releases of hazardous substances, pollutants, and con-
taminants. EPA is tasked to designate On-Scene Coordinators (OSCs) who will direct
response efforts and coordinate all other efforts at the scene of a discharge or release of
hazardous materials (HAZMAT). EPA is also tasked to establish an Environmental Response
Team (ERT). The ERTs will provide assistance to the OSCs.
C. FEDERAL RADIOLOGICAL EMERGENCY RESPONSE PLAN (FRERP)
The FRERP provides the Federal Government's concept of operations for a multi-agency
response to radiological emergencies. The FRERP specifies that Federal agencies, in
conjunction with State and local governments, will periodically conduct radiological exercises.
The FRERP also tasks Federal agencies to assist other Federal agencies, and State and local
governments, with planning and training activities designed to improve response capabilities
for a radiological accident/incident.
D. FEDERAL RESPONSE PLAN (FRP)
The FRP expedites the delivery of Federal response assistance to States to assist their
recovery operations from the consequences of a significant disaster. The plan assigns EPA as
the lead agency responsible for planning and implementing Emergency Support Function
(ESF) #10 once the President issues a disaster declaration under the Stafford Act, which
identifies the Federal response actions for an accident or incident involving the actual or
potential discharge and/or release of HAZMAT.
II-1
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E. EXECUTIVE ORDER 12656 (EO-12656)
This order assigns Federal Departments and agencies emergency preparedness responsi-
bilities for national security emergencies. One of EPA's responsibilities is to develop Federal
plans and foster development of State and local plans designed to prevent or minimize the
ecological impact of hazardous agents (chemical, biological, or radiological) introduced into
the environment in national security emergencies.
F. FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA) RULE 44 OF THE
CODE OF FEDERAL REGULATIONS (CFR) PART 351 (44 CFR 351)
This CFR addresses Federal agency roles and assigns tasks regarding Federal assistance to
State and local governments in their radiological emergency planning and preparedness
activities. The assignments are applicable to radiological accidents at fixed nuclear facilities
and transportation accidents involving radioactive materials. One of EPA's assignments is to
participate with FEMA in assisting State and local governments in developing their radio-
logical emergency plans, evaluating exercises to test plans, and evaluating the plans and
preparedness activities.
II-2
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SECTION UI
WHY HAVE AN EPA RADIOLOGICAL EXERCISE PROGRAM?
EPA ORIA's primary reason for maintaining an exercise program is to enhance and ensure
Headquarters' (HQ), Laboratories, and Regional radiological emergency preparedness and
response capabilities. EPA's Radiological Exercise Program will:
• Provide a means to assess the adequacy of agency plans, procedures, and response
capabilities.
• Reinforce the knowledge, skills, and abilities of agency emergency response personnel.
• Provide training for emergency response personnel under varying scenarios or
situations.
• Require participants to network with each other and coordinate decisions on resources
and policy issues.
• Identify and streamline procedural and policy gaps.
• Provide an opportunity to reveal conflicts between Federal, State, or local government
procedures or equipment (e.g., the EPA's sampling procedures could be different than
those of the State and local governments).
• Confirm roles and responsibilities.
• Evaluate training effectiveness.
• Foster teamwork among Federal, State, and local HAZMAT responders and other
organizations such as Red Cross, FEMA, etc.
• Enhance public awareness and support for overall emergency management programs.
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SECTION IV
WHAT ARE THE DIFFERENT TYPES OF EXERCISES?
Federal, State, and local governments and private organizations have used a variety of exercise
types to assess the adequacy of their emergency plans. They have also used different termi-
nology to describe these exercises. The following are the standard exercises EPA ORIA uses
to test Radiological Emergency Response elements and procedures.
A. TABLETOP EXERCISES (TTXs)
A TTX is an activity in which elected or appointed officials and key staff with emergency
management responsibilities gather in an informal seminar setting, usually in a conference
room. TTX participants discuss actions to be taken during an emergency based upon the
emergency plan and its Standard Operating Procedures (SOPs). The primary characteristic is a
verbal "walk-through" of a response to an emergency situation. The TTX is designed to elicit
constructive discussion by the participants as they examine and resolve problems based on the
emergency plan.
The purpose of a TTX is to have participants practice problem solving and resolve
questions of coordination and assignment of responsibilities in a non-threatening format, under
minimum stress. TTXs can be used in preparation for a functional or full-scale exercise.
TTXs typically involve a limited explanation of operational response and/or internal
coordination activities. The objectives of the exercise will determine the number of partici-
pants from local agencies. Post-exercise evaluation activities are usually limited to an oral
critique session during which recommendations for improvement are discussed with and among
participants. A brief written report summarizing exercise activities and recommendations for
improvement may also be prepared. The use of controllers, who are not players in the
exercise, can help identify opportunities for improvement. The number of controllers needed
will vary depending upon the size of the community, resources available, and number of
functions exercised. One or two controllers are frequently used, but six or even more could be
used for a large exercise. Figure 1 depicts the recommended layout for a TTX. This layout
provides participants the opportunity to face each other, with the moderator in the middle.
The moderator will present the group questions/issues and then allow all members to provide
their response. Controllers will monitor the responses provided by the members. Controllers
will sit in an area (not at the table) whereby they will be able to hear what is being discussed.
IV-1
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Figure 1. Suggested Layout for a TTX
B. COMMAND POST EXERCISES (CPXs)
Some Federal and State emergency response organizations use the terminology Command
Post (CP), and some use the name Functional for this type exercise. In this manual, the term
CP will be used. A CPX is more extensive than a TTX in that activities are conducted beyond
a conference room atmosphere. It usually takes place in some type of Emergency Operations
Center (HOC), with concurrent field activity (e.g., at the scene of a simulated incident/related
incident). This type of exercise often focuses on a single function or activity within a function
(e.g., direction and control). It can also involve deploying equipment for a specific limited
purpose.
The purpose of a CPX is to test the planning and response capabilities of personnel and
systems in specific situations. For example, a direction and control CPX could be designed to
test and evaluate the centralized emergency operations capability and timely response of one,
two, or several units of Government under a stressful environment. The exercise might be
centered in one or more EOCs or CPs and could either simulate or involve the use of limited
outside activity and resources. The level of resources mobilized should be adequate to
demonstrate the direction and control operations in response to the simulated emergency.
The scope of activity in a CPX includes more policy and coordination personnel than are
usually involved in TTXs. The level of response agency coordination should increase as more
agencies from State and local governments participate. The number of controllers needed is
usually more than for a TTX; 4 to 12 controllers is a fairly typical range. These numbers are
only examples, however, the number of controllers will vary from exercise to exercise,
depending on the size of the exercise and number of functions exercised. Post-exercise
IV-2
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activities include an oral critique and a written report of the exercise activity and recom-
mendations for followup activity being submitted to local officials.
C. FIELD EXERCISES (FXs)
Some Federal and State emergency response organizations use the terminology Field
Training Exercise (FIX), and some use the name Full Scale for this type of exercise. In this
manual, the term Field Exercise (FX) will be used. An FX is more extensive than a TTX and
CPX in that activities are conducted in the field environment and not limited to a conference
room or EOC. An FX is used to evaluate response organizations' operational capabilities in an
interactive manner over several hours or days.
The purpose of an FX is to test a major portion of the functions in an emergency plan
and/or SOPs. An FX incorporates a high degree of realism, extensive involvement of
resources and personnel, and an increased level of stress. Player activity drives the exercise.
This type of exercise includes mobilization of personnel and resources to several sites
(e.g., State and local EOCs, Incident Command Posts [ICPs], mass care centers, medical
facilities, and equipment staging areas). This usually involves the actual movement of
emergency personnel and equipment required to demonstrate a coordinated response capability.
An FX involves operational or technical personnel as well as policymakers. The number
of controllers is usually more than that required for either a TTX or CPX. The number of
controllers could range from 25 to 50, depending on the size of the exercise. Post-exercise
activities include an oral critique, a participant debriefing, and a formal written report.
Table 1 addresses the exercise characteristics for each type of exercise.
IV-3
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Table 1. Exercise Characteristics
WHO
WHAT
WHERE
WHY
CONTROLLERS
NEEDED
TABLETOP (TTX)
(Verbal "Walk-
Through")
- Elected/appointed
officials
- Key emergency
management staff
- Includes Federal,
State, and local
agencies
- Discusses actions
to be taken during
simulated emer-
gency situations
- Internal and
external coordi-
nation activities
- Conference room
- EOC
- Practice problem
solving
- Evaluate emer-
gency plans
- At least one for
each functional
area
COMMAND POST (CPX)
(Limited, Fimction-
i Specific Activity)
- Same as TTX, plus
function-specific policy
and coordination
personnel
- Includes Federal,
State, and local
agencies
- Exercise-specific
functions (e.g.,
direction and control
alert and notification)
- Coordination internally
and externally
- EOC
- Scene of functional
activities in field (e.g.,
alert, notification
response)
- Scene of a fixed facility
or a transportation
incident
- Test the functional
planning and response
capabilities of person-
nel and systems
- At least one for each
functional area
FIELD EXERCISE
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SECTION V
WHAT IS THE PROCESS FOR DEVELOPING AN EXERCISE?
A. SELECTION OF A CHIEF EXERCISE PLANNER
Radiological Emergency Response Exercises will be conducted by EPA Headquarters, the
National Air and Radiation Environmental Laboratory (NAREL) and Radiation and Indoor
Environments National Laboratory (R&IENL). Upon the decision to conduct an exercise, the
office providing funding will consult with the other two offices and will appoint a Chief
Exercise Planner.
B. CHIEF EXERCISE PLANNER
The Chief Exercise Planner:
• Ensures proper planning, preparation, conduct, control, and evaluation of the
exercise.
• Promotes the implementation of corrective actions and improvements.
• Develops and manages the contract.
• Manages the exercise budget. The Chief Planner is responsible for allocating
funds, tracking and documenting expenses, and staying within budget.
• Reviews lessons learned from past exercises and determines a plan for the current
one.
• Keeps the Radiation Protection Division (RPD) Director, CRMER Director, and
other RERT Commanders informed on the status of the exercise.
C. CONTRACT DEVELOPMENT AND MANAGEMENT
If the decision is to use a contractor to support the development and conduct of the
exercise, the Chief Exercise Planner will develop and manage the contract or work assign-
ment. The Chief Exercise Planner must be a certified Work Assignment Manager.
A decision as to whether contractor support is required should be made far enough in
advance to assure the required contract documentation is properly processed.
V-l
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D. SELECT AN EPA EXERCISE DESIGN TEAM
A key element in the successful development of an exercise is to establish an Exercise
Design Team. The "Team" selects the scope and objectives of the exercise.
The Exercise Design Team should consist of the CRMER Director, Chief Exercise
Planner, representatives from NAREL, R&IENL, affected Region Superfund Office, and
affected Region Radiation Program Manager. Representatives from State and local agencies
should be added after the EPA Exercise Design Team's first meeting. The Team may include
industry representatives from the facility being used in the exercise for tabletop or field play
or, for transportation-related scenarios, representatives from the shippers or carriers. Because
they usually are first to notice unusual and potentially dangerous events, they play a crucial
role in the design of a realistic exercise.
Assign team members who are knowledgeable in the disciplines or functions being
exercised. These persons should also have experience in emergency management and
response, be creative, and possess "team building skills."
E. EXERCISE DESIGN TEAM
The Exercise Design Team:
• Identifies the objective of the exercise.
• Selects the exercise site.
• Decides the extent of exercise play.
• Writes the exercise scenario.
• Identifies the exercise participants.
• Briefs their respective senior leaders on the exercise.
(If contractor support is used, they will assist by providing recommendations for all of the
above.)
F. SELECTION OF AN EXERCISE SITE
The selection of the exercise site should be a joint effort between the EPA, State, and local
communities. The EPA Exercise Design Team members should select several proposed
exercise sites. This should be done at least 6 months prior to Tabletop and 18 to 24 months
prior to a Command Post or Field Exercise. The following items should be considered in
V-2
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selecting a proposed exercise site for a TTX or CPX (FX recommended issues are addressed in
Table 2):
V-3
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Table 2. Considerations When Selecting a Site for an FX
(*Items that also apply to TTX or CPX)
Budget: What the exercise will cost to plan, conduct, and evaluate.
*2.
FEMA multi-year exercise schedule and DoD, Joint Staff/Joint Training Master
Schedule.
Availability of Federal, State, and local government emergency response elements.
Availability of State radiological health personnel
*4.
*5.
Objectives of the exercise.
Number of participants.
How many radiological monitoring teams will be used.
*8.
What is the scenario? Does the scenario simulate an incident in an urban area or
remote location?
*9.
Will the site be available for exercise use?
10.
Number of buildings or separate locations available. If the exercise will be a major
exercise and involve the Federal Radiological Monitoring and Assessment Center
(FRMAC), Joint Information Center (JIC), and Joint Operations Center (JOC), several
separate buildings will be needed. The size and number of buildings wili depend on the
number of participants.
11.
Sufficient electrical power available to support equipment (e.g., portable generators,
computers, fax machines, laboratory equipment, and radios).
12.
Sufficient telephone communications capability available.
13.
Determine what type of construction or repairs (buildings, electrical, and telephone) are
scheduled for the exercise location that may interfere with the exercise.
14.
Sufficient toilets and sanitary facilities available. For an FX you will probably have to
rent portable toilets.
15.
Are there any State, local, national, or international events that could interfere with the
exercise?
16.
Is there access to copying machines or computers? If not you may have to rent these
items.
17.
Will there be a requirement for security guards during exercise play and non-exercise
play?
18.
If the exercise is being conducted on a Federal, State, or local government installation,
find out if the host is capable of providing security guards. If the exercise is not
conducted on a Government installation, you will have to procure the services for
security guards.
Is there sufficient lodging near the exercise site?
19.
-^ *" — — _ _ ~ <•?___*>!- ._'___________ — — — —
Is there a sufficient number of rental cars jn the general vicinity of the exercise site?
20.
21.
Is there a major airport near the exercise site?
22.
Are there eating facilities near the exercise site?
23.
Are there medical facilities in the general vicinity of the exercise site?
24.
What is the weather at that time of year? Is there sufficient means of heating, cooling,
and water available for people involved in the exercise?
25.
Is there sufficient lighting for both day and night operations.
26.
Is there ample parking around the site? If not, are there available buses to bring people
to and from hotels?
V-4
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V-5
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• Budget: What the exercise will cost to plan, conduct, and evaluate.
• Date of the last exercise conducted in that particular EPA Region.
• Objectives of the exercise.
• Projected Events: State, local, and national or international events that could interfere
with the exercise or securing of adequate logistical equipment.
• FEMA multi-year exercise schedule and Department of Defense (DoD), Joint Staff/
Joint Training Master Schedule.
• Site availability.
• Availability of State radiological health personnel.
• Availability of emergency response elements.
• Weather at that time of year.
• Political climate.
After selecting several proposed exercise sites, the EPA Chief Exercise Planner will
contact each of the proposed exercise site representatives to determine if the State and local
communities would be receptive to conducting an exercise. Once an exercise site or a list of
possible sites is selected, a Site Selection group should visit the area to ensure its suitability for
the exercise. Representatives from EPA and State and local communities should conduct an
initial planning meeting approximately 14 to 18 months before the exercise.
G. EXERCISE SCHEDULE
The FEMA Exercise Division develops and manages, in coordination with other Federal
Departments and agencies, a multi-year exercise schedule for FEMA Regional Offices, State
and local governments, and private and volunteer sector organizations. The EPA Chief
Exercise Planner will contact and provide the FEMA Exercise Division with the proposed
dates for the EPA scheduled exercise. The EPA Chief Exercise Planner will also contact the
projected participating Federal agencies to inform them of the proposed exercise. This will
eliminate conflicts with other Federal, State, and local government exercises. Table 3 identi-
fies the recommended scheduling time for the different types of exercises.
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Table 3. Recommended Exercise Schedule
TYPE OF EXERCISE
TTX
CPX
FX
SCHEDULING TIME
1 8 months before the exercise
2 years before the exercise
2 years before the exercise
H. ESTABLISH EXERCISE OBJECTIVES AND EXTENT OF PLAY
The success of the exercise is dependent on the quality of the exercise objectives. The
EPA Chief Exercise Planner must develop a proposed set of exercise objectives prior to the
Initial Planning Conference (IPC) to provide a basis for discussion between planners. The
exercise planning team will take the following steps in developing the exercise objectives and
extent of play:
• Conduct a needs assessment to identify areas not previously tested or that need
improvement based upon previous exercises or actual events.
• Determine the stage of development of emergency response plans and procedures.
• Determine the nature and extent of risk posed by radiological materials located hi or
passing through the community.
• Ensure each exercise objective clearly states what is to be demonstrated.
• Ensure the objective is measurable.
I. ESTABLISHMENT OF WORKING GROUPS
Depending on the scope of the exercise, one or more working groups may be established
to assist in the development, design, conduct, and evaluation of the exercise. Each working
group should have a leader chosen for his/her reliability, experience, and prior relationships
with the primary planners. Each working group develops specific objectives that support the
broader, overall exercise objectives. Working groups should meet at the scheduled planning
conferences and on an as-needed basis throughout the planning cycle. The working group
leader will keep the Chief Exercise Planner informed and coordinate all working group
meetings. The following list provides some background on the typical working groups;
however, not all groups are used for each exercise, and new groups are added as required.
Exercise Steering Group - The Exercise Steering Group provides overall guidance and
focus for the exercise. This group is made up of senior planners and working group leaders
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and is chaired by the EPA Chief Exercise Planner. The Exercise Steering Group provides
specific instructions or guidance for each working group and serves as the approving authority
for exercise plans and activities. It is imperative that the group meet early in the planning
cycle and routinely thereafter to ensure continuity of planning
Scenario - The Scenario Working Group (SWG) is made up of key planners familiar with
exercises and radiological material hazards. The SWG consist of planners from Federal, State,
and local government levels. The SWG ensures that there is adequate play to test all
objectives. They develop agreed-upon source terms based on participant objectives and
consistent with current source term technology. The SWG will establish a team consisting of
HQ EPA ORIA; Laboratories; and the effected EPA Region, State, and local government
representatives to develop the radiological scenario for the exercise. After the scenario is
developed, the SWG presents the scenario to the full complement of planners. After
acceptance of the general scenario, the SWG usually disbands. This group is not always used
in developing an exercise.
Hazards - The Hazards Working Group establishes the hazards pattern. This group
prepares appropriate deposition plots, ensuring the development and distribution of
complimentary data sets for monitoring and assessment. The group assists in identifying
hazard response teams and corresponding controller personnel requirements. This group also
provides information to the Medical Working Group to assist in determining the extent and
types of casualties. Depending on the scenario, the Team may consist of personnel from the
State and local government Fire Department, Hazardous Material Team, and Radiological
Emergency Response Office. Working Group members should be knowledgeable of the
characteristics of HAZMAT and explosives.
Medical - The Medical Working Group will determine the number and types of casualties
in relation to the level of contamination, developing corresponding hospital and medical
response play. They will determine specific casualties and identify the actors to play the
injured and contaminated personnel who require medical treatment from the participating
medical facilities.
Policy - The Policy Working Group addresses international, national, and State and local
government policy issues related to the exercise. After coordination with appropriate working
groups and the Chief Exercise Planner, the Policy Group develops exercise play to include
real-world policy issues affecting response, recovery, restoration, and remedial actions. They
also identify relevant and applicable policy for the exercise.
Legal - The Legal Working Group develops the legal portion of the scenario. This group
works closely with the Policy Group, dealing with real-world and exercise issues that have
legal implications. To ensure proper legal play, the Legal Group develops scenario injects that
specifically address legal and policy issues in conjunction with the Policy Group.
V-8
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Communications - The Communications Working Group is responsible for developing
exercise communications operating plans to meet participant requirements. The Communi-
cations Working Group will review controller and player needs (both real-world and exercise
related) to ensure the adequacy of communications capabilities and determine any requirements
for additional communications equipment. Once the communications operating plans have
been approved, the Communications Group will coordinate with the participants and other
supporting activities to ensure the communications plans are fully implemented.
Safety - The Safety Working Group is primarily concerned with site safety during the
exercise. This group examines the site location and identifies any safety concerns. After the
site survey, the group develops a written site Safety Plan that is incorporated into the exercise
documentation. Prior to and during the exercise, the Safety Working Group ensures that
safety issues are addressed during briefings and provides for the assignment of safety-related
duties to specific individuals.
Security - The Security Working Group develops the Security Plan for the exercise. The
plan includes provisions for collecting security clearances, developing badging requirements,
and providing security training Once the plan is approved, the Security Working Group
ensures full implementation.
Protocol - EPA, other participating agencies, and site representatives make up the
Protocol Working Group to address all the details related to observers or Very Important
Persons (VIPs) visiting the exercise site. The EPA representative plans the itinerary for a
Visitors' Day, and all arrangements are coordinated with the site Protocol Officer.
Participating agency support of the Visitors' Day, or other site visits, is coordinated through
the Protocol Working Group. Specific arrangements and briefings are subject to approval by
the Chief Exercise Planner and Exercise Director.
Public Affairs - The Public Affairs (PA) Working Group is responsible for real-world
PA issues, exercise PA injects, and creation of a credible media simulation cell that will
challenge the exercise participants. This group is also responsible for coordinating any
scheduled media day and ensures that public information activities concerning the exercise are
administered in accordance with guidance provided by the Exercise Director and Chief
Exercise Planner.
Logistics - The Logistics Working Group is responsible for planning the logistics
operations to meet the requirements for both controllers and players. This includes all
transportation, administrative and operational supplies, office equipment, dining requirements,
and transportation needs. Once a Logistics Plan is developed and approved, the Logistics
Group is responsible for its coordination and implementation.
J. ESTABLISH EXERCISE GROUND RULES
V-9
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Exercise ground rales should be published at least 60 days before the exercise and can be
found in the Controller Handbook and Players Guide. The ground rules will address the
following:
V-10
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• Operation and control of the exercise:
> Exercise initiation.
> Conflict resolution.
>• Exercise closeout.
• Role of exercise controllers:
> Injection of exercise messages, events, and data.
> Resolution of exercise-related conflicts.
> Suspension/termination of scenario events.
• Role of exercise evaluators:
> Interview players.
> Request copies of information, logs, sign-in sheets, and status boards.
> Provide feedback to exercise participants during post-exercise evaluator/
participant interviews.
• Federal, State, and local laws; regulations; ordinances; statutes; and legal requirements
applicable to exercise:
> Authority of police and sheriffs department officials.
> Traffic laws.
> Rules for personnel and property safety.
> Priority of actual emergencies over exercise play.
> Role of volunteer agencies and players.
> Expected play and agency attendance at and participation in exercise-related
meetings.
Table 4 addresses recommended initial actions you should accomplish when designing and
developing an exercise.
V-ll
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Table 4. Recommended Initial Exercise Design and Development Actions Timeline
ACTION
1 . Obtain management support for the exercise
2. Have exercise placed on the FEMA Joint
Master Exercise Schedule (JMEXS)
3. Procure funding for exercise
(Note: The planning and conduct of the
exercise may cover more than one fiscal
year. Procurement of funding may require
at least two fiscal years.)
4. Select a Chief Exercise Planner
5. Chief Planner develops planning timeline
6. Decide if contractor support will be used
7. Develop contract (Statement of Work
[SOW])
8. Select contractor
DATE REQUIRED
24 to 36 months :
before the exercise
2 years before
exercise
18 to 24 months prior
18 to 24 months prior
18 to 24 months prior
18 to 24 months prior
18 to 24 months prior
18 months prior
LENGTH OF TIME
TOCOMPLETE
3 months
2 months
6 to 8 months
1 week
2 weeks
2 to 3 months
1 month
3 to 4 months
V-12
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SECTION VI
WHAT CONFERENCES ARE CONDUCTED?
A. INITIAL CONCEPT CONFERENCE (ICC)
Representatives from EPA ORIA, Regions, NAREL, and R&IE will attend the ICC. The
conference should be scheduled 18 to.24 months prior to the planned exercise execution date
and should last 1 or 2 days. Table 5 provides a typical list of all the conferences that will be
required. A successful initial conference should:
• Specify type of exercise to be conducted.
• Develop tentative timeline.
• Identify proposed location.
• Determine funding plans.
Table 5. Recommended Conferences Timeline
ACUON
1 . Conduct ICC meeting with representatives
from NAREL, R&IE, and the EPA Region
on where the exercise will be conducted,
and select the site
2. Conduct initial planning meeting with
Federal, State, and local governments
3. Conduct IPC
4. Conduct Site Survey and Scenario
Development Conference
5. Conduct Scenario Review and Inject
Development Conference
6. Conduct Inject Review and Logistic
Planning Review Conference
7. Conduct Logistics Review Conference
8. Conduct Final Planning Conference
DATE REQUIRED
18 to 24 months prior
14 to 18 months prior
12 months prior
10 months prior
8 months prior
6 months prior
4 months prior
2 months prior
LENGTH OF TIME
TO COMPLETE THE
ACTIVITY
2 days
1 day
2 days
2 to 3 days
2 to 3 days
2 to 3 days
1 to 2 days
' 2 to 3 days
B. INITIAL MEETING WITH FEDERAL, STATE, AND LOCAL GOVERNMENTS
VI-1
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If the exercise scenario requires EPA to be the Lead Federal Agency (LFA) in a multi-
agency response under the FRERP, other Federal agencies should be invited to the initial and
followup meeting. If EPA will not be the LFA under the FRERP, other Federal agencies may
not be required. The initial meeting with either Federal, State, or local government repre-
sentatives is conducted about 14 to 18 months before the exercise. The primary purpose of the
meeting is to meet Federal, State, and local government representatives. EPA representatives
from ORIA, Region, NAREL, and R&IE will attend the meeting. Annex A is a listing of
Federal agencies that participant in radiological exercises. Exercise objectives and locations
will determine who should be invited to attend the initial meeting. The following are agenda
items to be discussed at the meeting:
• Purpose of exercise.
• Proposed exercise objectives and scope.
• Proposed type of exercise.
• Proposed exercise schedule.
• Funding.
• Proposed Federal agencies participation.
• State and local government participation.
• Selecting the exercise site.
C. INITIAL PLANNING CONFERENCE (IPC)
The IPC provides the first opportunity for planners and participants to discuss the exercise
and provide input. The primary purpose of the conference is to come to an initial agreement
on exercise concepts and objectives and to form the working groups. This conference should
be scheduled 12 months prior to the planned exercise execution date and usually lasts 1 or
2 days. EPA ORIA, Region, NAREL, R&IE, and State and local government personnel
should attend. The following is a list of items that should be covered at the IPC:
• Establish the point of contact for the exercise.
• Objective of the meeting.
• Proposed purpose of the exercise (i.e., exercising the HQs, Laboratories, and Regional
radiological emergency preparedness and response capabilities).
• Exercise concept (i.e., TTX, CPX, or FX and time of play).
VI-2
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• Location and date for the exercise.
• Exercise objectives. (Each participant organization will have an objective they plan to
achieve from the exercise [i.e., exercise decision-making process for Protective Action
Recommendations] and test the adequacy of emergency response forces equipment.)
• Exercise scope. (What functional areas will be represented in the exercise [i.e.,
radiological monitoring, medical, logistics, etc.]?)
• List of tentative participants,
• Availability of resources from all sources (Federal, State, local, and private sectors).
• Exercise planner responsibilities.
* Budget for the exercise.
• Name of the exercise.
D. SITE SURVEY AND SCENARIO DEVELOPMENT CONFERENCE
The Site Survey and Scenario Development Conference should be conducted approximately
45 to 60 days after the IPC. The purpose of this conference is to brief exercise planners on the
exercise objectives, develop the scenario, and survey the exercise site. A survey of the site
should be conducted before the development of the scenario. The following items must be
considered when conducting the site survey:
• Exercise Objective and Extent of Play - Consider the type of exercise, site
capabilities, and limitations for TTX, CP/Functional, and FX/Full-Scale exercises.
• Budget for the Exercise - Consider the amount budgeted when surveying the site
capabilities and limitations. Determine if the site capabilities will provide you the
infrastructure you will require for the exercise (i.e., private rooms, electrical systems
available, sufficient sanitary facilities are in place, etc). If the infrastructure is limited,
you may have to provide funding for renting the required support (i.e., toilets, chairs,
etc.).
• Available Facilities - The number and type of facilities required are determined by the
type of exercise. There should be sufficient space and facilities to realistically separate
the player locations and provide areas for the required controller operations.
• Sufficient Toilets and Sanitary Facilities - Local Department of Health authorities
can indicate how many restrooms and sanitary facilities are needed, based on the
projected number of people attending.
VI-3
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• Lodging Space - Determine whether there is adequate lodging in the local area for al!
out-of-town participants.
• Weather - Determine if sufficient heating, cooling, and water are available for
exercise participants.
• When developing the exercise scenario, planners must consider the following:
> The objectives of the exercise.
> The extent of exercise play.
> Who will participate as players and controllers.
> A description of where, what, and when the accident/incident occurred.
> Security classification.
> Clearly defined, preplanned times of the various stages of the accident/incident.
> Props that will be used to simulate the radiological materials.
> Use of realistic weather conditions in the scenario, but not necessarily the actual
weather on the day of the exercise.
> Impact of real weather at exercise time of play, deployment, health and safety, etc.
> Designing the exercise scenario so that requirements for protective actions are not
predictable. Some exercise scenarios could be used that would not require or
prompt the immediate evacuation of personnel.
> Consideration of simulating a real past incident. Review case history of
accidents/incidents that have occurred.
E. SCENARIO REVIEW AND INJECT DEVELOPMENT CONFERENCE
The Scenario Review and Inject Development Conference should be conducted about 60 to
90 days after the Site Survey and Scenario Development Conference. The purpose of the
Scenario Review and Inject Development Conference is to review the scenario and start the
development of the injects. The conference is scheduled for at least 2 full days. Issues to be
considered or completed during the conference include:
• Finalization of the scenario. Review data and go over the entire scenario page by page!
VI-4
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• Review of draft injects and development of final draft injects.
• Ensuring sufficient exercise play to cover the extent of the exercise.
* Ensuring injects possess the following qualities:
> Reflect exercise objectives.
> Are realistic.
> Stimulate players to provide a response and promote discussion.
> Have a clear purpose and objective.
• Setting parameters for technical data.
F. HOW INJECTS WORK ON FIELD PLAY
Injects are prepared scenario messages given to players to stimulate play. Injects used
during a FX allow for players to have more free play. Free play allows players to respond to
an exercise event the same way they would for a real event. Injects used hi field play should
not describe situations that players can, and should, recognize through their own senses.
Players will be provided information as they progress through the scenario and "earn" infor-
mation. To earn information, the players must act in a manner that would provide them the
information in a real event. For example, a radiological monitoring team conducting survey
monitoring would be provided a radiological reading verbally as they processed through the
area. All of the Injects are monitored by the Exercise Master Control Cell.
G. INJECT REVIEW AND LOGISTIC PLANNING CONFERENCE
The Inject Review and Logistic Planning Conference should be held about 90 days after the
initial Inject Development Conference. For an exercise scheduled for 4 to 5 days of exercise
play, it should take 3 to 4 days to adequately review the Injects. A half or full day should be
scheduled to discuss and identify logistics requirements. Table 6 provides recommended
actions for accomplishing logistics requirements. The following items are considered during
the logistics segment of the conference:
• The number of participants (e.g., controllers, players, observers, and VIPs). Each
organization will provide its expected number of participants no later than (NLT)
30 days after the conference.
• The size of the exercise site.
VI-5
X23-H
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• Current logistic capabilities of the site (e.g., number of facilities available to house
exercise participants, telephones, and electrical power).
• People and equipment each participating organization will bring to the site.
• Each organization's logistics requirements. All participating organizations provide
their logistics requirements to the logistics point of contact (POC) NLT 30 days after
the conference.
• Lodging Requirements: How many hotel rooms available during the exercise.
• Weather: Extreme cold or hot, etc.
• Eating requirements.
Table 6. Recommended Logistics Timeline
;: T/I/ . :-;': FACTION;' ;: :.::. '.'1 ::::; "
1 . Exercise site current logistics and facilities
capabilities identified
2. Request submitted to exercise planners for
their logistic and facilities requirements
3. Initial logistics and facilities requirements
developed
4. Lodging reservations accomplished
5. Final logistics and facilities requirements
determined
6. Exercise participants feeding plan developed
7. Transportation plan completed
8. Communications plan completed
9. Radio frequencies identified
10. Traditional logistics and facilities procured for
an exercise:
a. Portable restrooms (for FX)
b. Electrical requirements for laboratory
vehicles
c. Foul weather equipment
e. Administrative supplies (e.g., paper, pen,
pencils, etc.)
f. Use of computers, copiers, and fax
machines
1 1 . Simulation aids procured (e.g., moulage kit,
contamination indicators)
DATE REQUIRED
i 6 months prior
; 5 months prior
4 months prior :.;:|
3 months prior
2 months prior
i 1 month prior
;3 to 2 months prior
1 month prior
! tfnonth prior
1 jripnth prior
1 to 2 months prior
: 1 to 2 months prior
14 days prior
:1 to 2 months prior
.:i;1 to 2 months prior
LENGTH OF TIME
TO COMPLETE
ACTIVITY
3 weeks
2 days
1 month
3 weeks
1 month
1 week
3 weeks
1 month
2 weeks
2 to 4 months
1 to 2 months
[ 12. Special permits obtained. Environmental
3 months prior
1 to 2 months
VI-6
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ACTION
DATE REQUIRED
LENGTH OF TIME
TO COMPLETE
ACTIVITY
Impact Statement (EIS) written and submitted
if required. Permission from State and
Radiological Health or Nuclear Regulatory
Commission (NRG) to use sources on site.
13. Material for identifying participants procured
2 months prior
3 weeks
H. LOGISTICS REVIEW CONFERENCE
The Logistics Review Conference should be conducted about 60 to 90 days before the
execution of the exercise. The purpose of the conference is to review and finalize all logistics
requirements.
I. DRY RUN OF THE SCENARIO
A dry run of the scenario is conducted by all Exercise Planners involved in the develop-
ment of the scenario. The dry run should be conducted about 60 to 90 days before the
exercise. The diy run will check to ensure that dose calculations, field readings, and
laboratory generated data meet the objectives of the exercise. The dry run will also be
conducted to determine if there are any major flaws in the plans for a TTX and the flow of
play for a CPX or FX.
J. FINAL PLANNING CONFERENCE
The Final Planning Conference is conducted 45 to 60 days before the execution of the
exercise. Table 7 provides recommended administrative and logistic actions to accomplish for
a conference. The following items should be reviewed or accomplished at the conference:
• Review of exercise concept, objectives, and players.
• Functional area .team chiefs (e.g., Policy, Hazards, Medical, Legal, Logistics, PA, and
Protocol) provide status reports.
• Finalizing of communications requirements. Communications may consist of portable
radios, telephones, and fax machines for the controllers.
• Logistics requirements (e.g., lodging, transportation, feeding, and administrative
supplies) being finalized.
• Controller operations.
VI-7
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Table 7. Recommended Administrative Actions to Do Before and
After a Conference Timeline
?: ACTtON . .' .: . .L :
1 . Schedule conference/meeting
facility
2. Send out conference/meeting
announcement
3. Develop conference/meeting
objectives and agenda
4. Distribute agenda
5. Schedule audiovisual
equipment
6. Arrange for food/drinks,
parking, and security
requirements
7. Produce handouts or other
supporting materials
8. Arrange for minutes of the
meeting to be taken
(contractor)
9. Ensure facility setup
10. Ensure sign-in sheets are
available
1 1 . Publish minutes
DATE REQUIRED
45 to 30 days prior
30 days prior
25 days prior
14 days prior
14 days prior ;
f4daysplrior
7: days prior
7 days prior
\ ."^l-'diayifxjQr:"^- ;
:.. :--:;!:1^dJayi:pf«qid;U. .:•.;
"• '::^0:'days;;iftel;-:'::-:|:
LENGTH ®F TIME TO
COMPLETE THE ACTIVITY
2 weeks
3 days
2 weeks
1 day
1day
3 days
2 days
1 day
1 day
1 day
1 week
X23-H
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SECTION VII
WHAT TYPE OF DOCUMENTS ARE DEVELOPED?
Exercise documents provide planners, controllers, players, and evaluators the information and
background necessary to do their jobs. The documents required vary from exercise to
exercise. Due to the complexity and time period for the development of the documents,
planners should be given sufficient time to review and provide comments on the documents.
After the documents have been approved by the planners, you have two options for providing
the planners the final version of the documents. The first option is to issue the documents at
check-in for the exercise. The second option is to issue the documents to planners when they
are finalized. Table 8 provides a recommended timeline for publishing each document. The
following are documents that are generally used to plan and conduct an exercise.
Table 8. Recommended Timeline for Publishing Documents
ACTION
1. Develop First Draft EXPLAN
2. Develop Draft Organization Emergency
Response Procedures
3. Develop Draft Injects
4. Publish Final EXPLAN
5. Develop Draft Site Restoration EXPLAN (if
used)
6. Publish Final Organization Emergency
Response Procedures
7. Develop Draft Players Guide
8. Publish Final Site Restoration EXPLAN
9. Publish Controllers Handbook (including
Injects)
10. Publish Final Players Guide
1 1 . Publish Communications Directory
DATE REQUIRED
10 months prior
8 to lOimontns prior
; 9 months prior :
8 months prior •;
: 7 months prior
7 months prior ;
2 to 5 months prior
4 months prior
3 months prior
1 month prior
2 weeks to 1 month
prior
LENGTH OF TIME
TO COMPLETE
3 weeks
3 weeks
2 months
1 day
3 weeks
1 day
3 weeks
1 day
1 day
1 day
1 day
A. EXERCISE TIMELINE
The timeline provides a sequential list of major milestones in the planning and development
of exercise documents and is used by the exercise planners to schedule planning conferences
and track exercise events. The timeline is flexible and changes as the exercise develops.
VIM
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C. SECURITY CLASSIFICATION GUIDE
The Security Classification Guide provides guidance on the classification of materials
associated with the exercise. The Security Classification Guide is not required for all exercises
and should be developed only if the exercise is classified or contains classified information.
D. EXERCISE PLAN (EXPLAN)
The EXPLAN provides exercise planners with the information necessary to plan, design,
and conduct the exercise. It contains information on the exercise concept, objectives, assump-
tions, artificialities, rules, and responsibilities. The EXPLAN also addresses security and
logistics issues, provides PA guidance, and details safety considerations during exercise execu-
tion. It is based on planning factors and estimates available at the time of preparation and is
subject to modification during the final planning and preparation phases of the exercise.
E. ORGANIZATION EMERGENCY RESPONSE PROCEDURES
The Organization Emergency Response Procedures is known by some Federal, State, and
local organizations as the Procedural Flow Synopsis (PROFLOW). The Organization
Emergency Response Procedures describes the responsibilities and functions of organizations
responding during the exercise and provides planners and controllers with a sequential list of
anticipated actions by these organizations. This document lists the specific response elements
and discusses the plans and policies in effect for the exercise scenario.
F. CONTROLLER HANDBOOK
The Controller Handbook provides the controllers with the information necessary to
conduct the exercise. Injects are a part of the Handbook. The Injects are hard copy or voice
command given to players to stimulate player's responses in a specific area. The Handbook
also contains background information and a basic exercise description. During planning and
development, the draft Inject is produced, and after an inject review, a draft inject is produced
and distributed. If the exercise is to be graded, direction for the evaluators will be included in
the Controllers Handbook.
G. PLAYERS GUIDE
The Players Guide provides guidance on how the exercise will be conducted and how
players should participate hi the exercise. The Guide also provides a synopsis of the exercise
purpose, objectives, schedule of play, and ground rules.
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L ACCIDENT/INCIDENT DESCRIPTION
The Accident/Incident Description provides planners with a detailed description of the
exercise scenario and contains contamination plots, a comprehensive casualty list, and a list of
key exercise events. The Accident/Incident Description also contains photographs and maps of
the scene. Depending on the scope and type of exercise, the Accident/Incident Description
may be combined with the Controller Handbook. The Accident/Incident Description should
only be issued to key controllers.
H. COMMUNICATIONS DIRECTORY
The Communications Directory is published in two separate books, one for players and the
other for controllers. The Directory contains telephone numbers, message formats, and
instructions for the type of communication equipment in use. The Communications Directory
is compiled using participants' inputs and should be tested prior to exercise execution.
I. SITE RESTORATION GUIDE/SITE RESTORATION EXPLAN
The Site Restoration Guide/Site Restoration EXPLAN is utilized when a separate Site
Restoration Phase is played during an exercise. The Guide provides a structure for the Site
Restoration Phase of the exercise and describes expected plans and player actions.
J. AFTER-ACTION REPORT (AAR)
The AAR contains detailed observations and specific lessons learned as a result of exercise
play. The AAR is coordinated among the participating organizations and can take several
months to complete. Historically, this document requires up to three drafts prior to a final
version being produced. Each draft is coordinated through the participating organizations and
then returned to EPA for revision.
The AAR is prepared initially in draft form about 30 to 45 days after the exercise. EPA
should provide the senior State and local government Chief Exercise Planners a copy of the
draft before it is distributed to all participants for their review. After the senior State and local
government Chief Exercise Planner changes are incorporated into the AAR, the report should
then be submitted to other participants for their review by the Chief Exercise Planner. All
comments should be received within 30 days. After resolution, the final AAR will be
published and distributed first to exercise participants, and then to all other interested parties
when finalized.
The AAR addresses operations that were done correctly and those that need improvement.
Some of the areas and questions that may be addressed in the report are:
• The initial notification of the incident.
• Deployment of emergency response elements.
VII-3
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* The coordination and integration of Federal, State, and local government emergency
response elements.
• Were radiological monitoring operations conducted properly?
• Was information exchanged between all agencies?
• Were communications equipment adequate?
• Did players provide the public timely notification of the hazard?
• Was a JIC established and effective?
• Were medical procedures properly followed in the handling of contaminated casualties?
• Was a JOC established?
About 2 months before the exercise, the Chief Exercise Planner should conduct a detailed
review to ensure all actions are completed or on schedule. Table 9 is a recommended final
readiness timeline to assist the Chief Exercise Planner in accomplishing the review.
Table 9. Recommended Final Readiness Timeline
--:,..::-..::—, ACTION '.- , >::.:::J
1 . All documents completed and distributed
2. Facilities identified and reserved
3. Logistic requirements finalized
4. All players and controllers identified by
name and organization
5. Ail observers and VI Ps identified by
name and organization
6. HQ EPA PA briefed on exercise
7. Plans for controllers and players
orientation sessions completed
!•;; :,•:•. '-DATE. -;•:• -: : :
REQUIRED
2 months prior
2 mbhths prior
2 months prior
; 2 months prior ;
il month prior
1 mpftth prior
1 month prior
LENGTH OF TIME TO
COMPLETE ACTIVITY
1 week
2 weeks
2 weeks
1 week
1 week
1 day
5 days
VII-4
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SECTION VIII
WHAT TRAINING AND ORIENTATION IS CONDUCTED?
A. CONTROLLER TRAINING
Controller training focuses on what the controller needs to know to control the exercise.
The training is conducted 3 to 5 days before the start of exercise (STARTEX) at all locations
where players will participate. The training is conducted by one of the Exercise Planners. A
STARTUP ORIENTATION is also provided to the controllers who will start the exercise and
focuses on the STARTEX Injects. Table 10 provides recommended administrative actions
required for conducting a training or orientation session. Areas covered at controller training
are:
• Exercise scenario.
• Schedule of key events.
• Exercise ground rules.
• Exercise control structure.
* Chief functional area controller responsibilities.
• Controller responsibilities.
• How to input Injects.
• How to document observations.
• Safety operations.
Table 10. Recommended Training/Orientation Sessions Timeline
ACTION
1 . Schedule facility
2. Distribute schedule
3. Reserve audiovisual equipment
4. Arrange for refreshments
5. Develop handouts
6. Ensure setup of facility
DATE REQUIRED
2: months prior ;
1 to;2 months prior ;
1 to 2 months prior
1 month prior
1 month prior
1 day prior
LENGTH OF TIME TO
COMPLETE ACTIVITY
3 days
2 days
2 days
3 days
2 weeks
2 days
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B. PLAYER ORIENTATION
Player Orientation focuses on player responsibilities and provides players with the back-
ground information necessary to participate in the exercise. Player Orientation should be
conducted about 2 to 3 days before the exercise at all player locations. The training should be
conducted by one of the Exercise Planners. Areas covered at Player Orientation are:
• Exercise purpose and objective.
• Exercise ground rules.
• Exercise artificialities.
• Schedule of events/explanation of data/how to read data.
• Exercise control (e.g., how the day-to-day operations will be controlled, who will
controllers report to, and where will the Control Center be located).
• Identification badges.
• Communications.
• Security.
* Safety operations.
• Controllers (e.g., the controllers responsibilities).
• Public Affairs (e.g., how to and who will respond to media inquires).
• Logistic operations (e.g., restrooms, refreshments, and eating areas).
C. ACCIDENT/INCIDENT SIMULATION CELL ORIENTATION
Accident/Incident Simulation Cell Orientation is conducted to coordinate individual con-
troller actions within the cell and ensure the most realistic simulation for the players. The
Orientation Session should be conducted by the Simulation Cell Chief Controller. The orienta-
tion should be conducted about 1 to 2 days before the exercise. Areas covered for this
orientation are:
VIII-2
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• Operations of the simulation cell.
• Expected flow of events during the exercise.
• How the controllers will "paint the picture" for the players.
D. MEDIA SIMULATION CELL ORIENTATION
This orientation is the responsibility of the lead PA Controller and focuses on media
actions and injects for the exercise. The training should be conducted about 1 to 2 days before
the exercise.
E. WASHINGTON (DC) AREA ORIENTATION
A special orientation package may have to be developed for senior-level players in the
Washington, DC, area and also for State and local government officials. The training should
be conducted by the Chief Exercise Planner about 2 to 3 days before the exercise.
VIII-3
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SECTION IX
HOW DO YOU CONTROL AND CONDUCT THE EXERCISE?
The purpose of controlling an exercise is to ensure that exercise objectives are accomplished.
Effectively controlling the exercise also provides a means for resolving problems or handling
changes in the scenario and/or timeline during exercise execution.
A. EXERCISE DIRECTOR
The Exercise Director has overall responsibility for the exercise. If the exercise is being
jointly sponsored by EPA and the State or local government, the duties of the Exercise
Director will be jointly shared. A senior level staff member will usually be the Exercise
Director. Table 11 is a recommended timeline for the Exercise Director to use when
conducting the exercise.
Table 11. Recommended Conduct of Exercise Timeline
ACTION
1. Controllers in place 2 hours before
STARTEX
2. Controllers provide communication
equipment
3. Conduct status check with each
Chief Functional Area Controller
4. Chief Functional Area Controller
provides status report to the Chief
Exercise Controller every 4 hours
5. Conduct daily exercise debriefing
with all Chief Functional Area
Controllers 1 hour after daily
ENDEX
6. Collect daily observation reports
from controllers
7. Tentatively identify daily items for
after exercise critique (good and
bad)
8. Start development of after-exercise
briefing immediately after final Chief
Functional Area Controllers meeting
9. Conduct after-exercise briefing
10. Distribute mementos
11. ENDEX !'
DATE REQUIRED
2 hours before
STARTEX
2 hours before
; -STARTEX" •• ; •••
• : 1: hour before :
..'.... :STARTEX ..../ :':
Every 4 hours
End of day i i
End of day
End of day
End of day
Last day of exercise
Last day of exercise
LENGTH Ol= TIME TO
COMPLETE ACTIVITY
3 hours
1 day
2 hours
1 hour
2 hours
1 hour
2 hours
2 to 4 days
2 to 3 hours
2 weeks
X23-K
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C. CHIEF EXERCISE PLANNER
During the conduct of the exercise, the Chief Exercise Planner supports the Exercise
Director and runs day-to-day operations during the planning and execution of the exercise. If
the exercise is jointly sponsored by EPA, State, or local governments, the duties could be
jointly shared with State and local governments. An associate Chief Planner is appointed to
ensure continuity of exercise planning and assistance in exercise execution.
D. CHIEF FUNCTIONAL AREA CONTROLLERS
Each functional area is assigned a Chief Controller. The Chief Functional Area Controller
ensures each of his/her respective controllers complete their assigned duties.
E. CONTROLLER ASSIGNMENT/DUTIES
A controller should be assigned to each functional area participating in the exercise. The
duties of the controller are:
* Review appropriate emergency response plans, procedures, and checklists before the
exercise.
• Attend required training and briefing sessions.
• Facilitate the conduct of the exercise by providing scenario information to players.
• Allow freedom of player decisions and actions.
• Inject approved contingency messages or provide instructions, as needed, to keep the
exercise on track with the scenario.
• Preclude player decisions and control actions that may compromise the exercise or
security.
• Observe and document the performance of the players.
• Stop the exercise if a safety hazard could cause an injury.
E. STARTING THE EXERCISE
The starting procedures for each type of exercise are different. The following are general
starting procedures for each type of exercise.
• TTX. The beginning of a TTX usually commences with the players and controllers
assembled in a room; the Exercise Moderator announces the beginning of the exercise.
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• CP. Players and controllers are assembled at their respective exercise locations (e.g.,
EOCs and laboratories). The exercise site location could be in several different geo-
graphically separate locations. The exercise generally begins by a controller inputting
an Inject into an HOC announcing an accident or incident.
• FT. Players and controllers will be assembled at their respective exercise locations
(e.g., EOCs and laboratories). If the objective is to test the mobility and response time
of the players, they will not pre-assemble at the exercise location. The exercise begins
with the accident/incident simulation at the scene and continues as responding forces
arrive at the accident/incident location.
F. DAILY EXERCISE OPERATIONS
F The EPA Chief Exercise Planner, under the auspices of the Exercise Director, is
responsible for the day-to-day operations of the exercise. The EPA Chief Exercise Planner
controls the exercise through the Master Control Cell (MCC). The MCC is established to
control, observe, and record player operations. The MCC consists of controllers from EPA,
other Federal agencies, and State and local governments.
G. ALL CONTROLLERS
All controllers will:
• Manage exercise play by implementing the Injects and by functioning, as required, to
simulate designated non-participating elements.
• Introduce, maintain, and coordinate exercise events in accordance with the Injects.
• Make voice injects to player elements as scheduled in the Controller Handbook, or as
directed by the Chief Exercise Planner.
• Ensure delivery of written injects to player elements at scheduled times.
• Observe and report exercise artificialities that interfere with exercise realism.
• Observe exercise play and provide comments on player free-play actions and on
individual injects.
• Receive outgoing exercise materials, messages, memorandums, etc., from exercise
participants sent to simulated agencies and individuals.
• Coordinate the contents of exercise materials with appropriate controllers in other
locations.
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• Submit Observation Forms to the EPA CMef Exercise Planner.
• Provide input on significant player actions and exercise events as a basis for the
exercise AAR.
• Submit a status report to the Chief Exercise Planner at the ENDEX day.
A controller folder should be provided to each controller and contains forms for recording
observations and post-exercise/after-exercise briefing topics. These forms will be given to the
Chief Exercise Planner at the ENDEX, prior to the after-exercise briefing.
Daily meetings should be conducted for Chief Functional Area Controllers to provide a
short synopsis of the events they observed that day. The meeting will also provide an
opportunity for controllers to review current status and future events.
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SECTION X
WHAT HAPPENS AFTER THE EXERCISE?
There are numerous activities conducted after an exercise. These activities include the
debriefing, site cleanup, AAR, and followup actions. Table 12 is a recommended timeline for
accomplishing post-exercise administrative actions. Also, after the exercise, an assessment of
the exercise planning and management is conducted. The exercise assessment addresses each
exercise objective and provides responses for the following:
• Was the objective(s) met?
• If yes, what were the results?
• If no, what changes are necessary to achieve the objective(s)?
A. DEBRIEFING
At the conclusion of exercise play, an after-exercise briefing is held summarizing the key
events of the exercise. The EPA Exercise Director determines the structure of the after-
exercise briefing and the number of organizations that will speak. Generally, all Chief
Functional Area Controllers and chief players from the major participating organizations
provide a briefing. The decision of who and how many personnel attend the after-exercise
briefing will be based on the size of the facility. The following is a suggested agenda for the
briefing.
• Opening remarks (provided by EPA and State or local exercise directors).
• EPA Chief Exercise Planner synopsis of the exercise purpose and objectives.
• Chief Functional Area Controllers brief for 5 minutes each.
• Remarks by the chief players from the major participating organizations.
B. SITE CLEANUP
A team is identified during the planning for the exercise to ensure all support materials are
returned to the owner and the site is restored to its original condition. The team should consist
of representatives from EPA, State, and local governments and the supporting contractor.
C. FOLLOWUP ACTIVITIES
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One of the most important and often neglected activity of an exercise is the followup
activities. Emergency response organizations do not receive the full benefit of the exercise if
followup actions are not accomplished to determine the status of the exercise recommenda-
tions. Suggested activities to accomplish followup activities include:
• Assigning tasks, a schedule, and responsibility for recommended improvement.
• Monitoring the progress of implementing recommended improvements.
• Testing improvements during the next exercise.
• Providing a copy of the AAR to all the EPA Regions.
Table 12. Recommended Post-Exercise Administrative Actions Timeline
ACTION
1 . Collect the following:
a. Roster of participants from each
organization
b. Critique sheet from each participant
2. AH non-EPA equipment returned to the
loaner
3. All EPA equipment collected from the
borrower
4. Identification devices for the controllers,
players, and observers collected
5. Restore area where simulations were
used
6. Ensure all trash is collected and properly
discarded
7. Distribute letters of appreciation to all
participating organizations and individuals
8. Develop and distribute first draft AAR
9. Conduct post-exercise meeting with
exercise planners from R&IE, NAREL,
and the EPA Region
9. Start followup activities
1 0. Develop Exercise Planning Lessons
Learned Report
1 1 . Receive comments on draft AAR
12. Publish final AAR
DATE REQUIRED
Last day of exercise
Last day of exercise
As soon as possible
-4-i: {ASAP} ' ^i ^ ' ;
:,• ;:-;;4 ; iASAP ::,-. :;
:.:::;,:...:. ASAP .:. ,,
ASAP
. :,;:-, ASAp :•;,::::•:<•!>
14 days after exercise
1i month after exercise
1 month after exercise
1 month after exercise
1 month after exercise
i.ji. 2 months after •;
::.:i exercise •'•. •
3 months after i
exercise
LENGTH OF TIME
TOCOR»»LETE
ACTIVITY
1 day
2 days
2 days
1 day
1 to 2 days
1 day
2 weeks
30 days
2 days
2 weeks
30 days
2 months
2 weeks
X23-L
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ANNEX A
EXERCISE PLANNING POINTS OF CONTACT
1. Assistant to the Secretary of Defense (Nuclear, Biological and Chemical, Defense
Programs (ATSD(NBC)), ATTN: Defense Threat Reduction Agency (DTRA), 45045
Aviation Drive, Dulles International Airport, VA 20166-7517. Assistant to the
Secretary of Defense (Atomic Energy) (ATSD(AE)) is responsible for all national-level
policy issues and senior-level interface with DoD and other Federal agencies.
2. Assistant Secretary of Defense (Public Affairs) (ASD(PA)), ATTN: Office of the
Assistant Secretary of Defense (Public Affairs) (OASD(PA)) (DPL), Room 2D757,
The Pentagon, Washington, DC 20301-1400. OASD(PA) is responsible for overall PA
planning and exercise and, specifically, development of Washington (DC)-area PA
play.
3. Joint Staff (JS), J-3/J-38, Nuclear Operations Division, ATTN: J-3/J-38 (NOCCD),
Room 3C935, The Pentagon, Washington, DC 20318-3000. This office is responsible
for planning, coordination, and exercise of the National Military Command Center
(NMCC).
4. Joint Exercise and Training Division (JETD), Operational Plans and Interoperability
Directorate, the JS, ATTN: J-7 (JETD), Room 2B857, The Pentagon, Washington,
DC 20318-7000. The JS will not only be responsible for internal notification, but also
conference calls among the Federal agencies.
5. Armed Forces Radiobiology Research Institute (AFRRI), ATTN: Manpower and
Reserve Affairs (MRA) and RSDR, 8901 Wisconsin Avenue, Bethesda, MD 20889.
AFRRI designs all medical and site restoration exercise play and is a member of the
Defense Nuclear Agency Advisory Team (DNAAT).
6. Director of Military Support (DOMS), HQ, Department of the Army (DA), Office of
the Deputy Chief of Staff for Operations and Plans, ATTN: Ordnance Delivery
Schedule (ODS) Washington, DC 20310-0400. The U.S. Army (USA) representative
is responsible for notification of USA units and elements that will be involved in the
exercise.
7. Headquarters, Department of the U.S. Air Force - (HQ USAF), ATTN: XOOO,
Room BD927, The Pentagon, Washington, DC 20330-1480. HQ USAF is responsible
for the coordination with USAF units involved hi the exercise.
8. Department of the Navy (DON), Office of the Chief of Naval Operations, ATTN:
Naval Operations (OPNAV)-lll, The Pentagon, Washington, DC 20350-2000. They
are responsible for notification of all U.S. Navy units involved in the exercise.
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9. U.S. Department of Agriculture (USDA), Food Safety and Inspection Service/Office of
Field Operation, Emergency Programs Staff, West End Court, Room 218, Washington,
DC 20250-3700. USDA is responsible for assisting State and local governments to
develop agricultural protective measures and damage assessments, procurement of
emergency food programs, and ensuring meat and poultry products are safe for
consumption.
10. Department of Energy (DOE), GTN, NN-61 and DP-23, 19901 Germantown Road,
Germantown, MD 20874. DOE DP-23 is responsible for the overall DOE planning
and utilization of radiological response assets.
11. Department of Energy, Albuquerque Operations Office (DOE/AL), Weapons Program
Division, Accident Response Group (ARG) Program Manager, P.O. Box 5400,
Albuquerque, NM 87185. DOE\AL is responsible for notification of the weapons
laboratories and the Atmospheric Release Advisory Capability (ARAC). DOE\AL will
establish a single POC for the weapons laboratories and ARAC (Sandia National
Laboratories, Los Alamos Laboratories, and Lawrence Livermore National
Laboratories) for the exercise.
12. Department of Health and Human Services (HHS), Office of Emergency Preparedness,
Twinbrook Building, Rockville, MD 20858. HHS assists with the assessment,
preservation, and protection of human health and helps ensure the availability of
essential human services including medical care, food, emergency shelter, and clothing.
The Food and Drug Administration (FDA), Public Health Service (PHS), and Center
for Disease Control and Prevention (CDC) are components of HHS.
13. Department of the Interior (DOI), Office of Environmental Affairs, ATTN: MIB-
2340, 1849 C Street, NS, Washington, DC 20240. Coordinates emergency response
planning for Interior-managed Federal park and recreation areas.
14. Department of State (DOS), Bureau of Diplomatic Security, Emergency Plans and
Exercises Division, U.S. Department of State Crisis Management Exercise
(DS/EPE/CME), ATTN: DS/EPE/CME, c/o 5th floor, SA-10, Washington, DC
20550-7310. This branch is responsible, in conjunction with the theater representa-
tives, to make contact with the Embassy and eventually the host government POCs and
provides exercise planning support. The Political/Military Affairs Office provides
policy interface between the military and DOS.
15. Department of Transportation (DOT), Office of Emergency Transportation,
Washington, DC 20590. DOT coordinates assistance to State and local governments
when civil transportation technical or logistical resources are insufficient to handle
requirements created by an emergency.
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16. EPA, ATTN: ORIA, 401 M Street, SW, Washington, DC 20460. EPA is responsible
for determination of any Protective Action Guidelines and will assume intermediate and
long-term off-site radiation monitoring activities from DOE following immediate
emergency crisis response.
17. FEMA, Response Planning and Exercise Branch 500 C Street, S, #512, Washington,
DC 20474. With DoD and DOE, a primary nuclear weapon accident planner, FEMA
provides overall coordination and planning with other Federal agencies, initiates
Federal notification, and has primary responsibility under the Stafford Act.
A-3
X23-M
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ANNEXE
ABBREVIATIONS AND ACRONYMS
AAR
AEC
AFRRI
Anti-Cs
ARAC
ARC
ASAP
ASD(PA)
ATSD(AE)
ATSD(NBC)
CDC
CEP
CERCLA
CFR
CP
CPX
CRMER
DA
DNAAT
DoD
DOE
DOE/AL
DOI
DOMS
DON
DOS
DOT
DTRA
DUSD(P)/EP
EIS
ENDEX
EO
EOC
EPA
ERT
After-Action Report
Atomic Energy Commission
Armed Forces Radiobiology Research Institute
Anti-contamination gear
Atmospheric Release Advisory Capability
Accident Response Group
As soon as possible
Assistant Secretary of Defense (Public Affairs)
Assistant to the Secretary of Defense (Atomic Energy)
Assistant to the Secretary of Defense (Nuclear, Biological, and Chemical
Defense Programs)
Centers for Disease Control and Prevention
Chief Exercise Planner
Comprehensive Environmental Response, Compensation, and
Liability Act
Code of Federal Regulations
Command Post
Command Post Exercise
Center for Risk Modeling and Emergency Response (ORIA)
Department of the Army
Defense Nuclear Agency Advisory Team
Department of Defense
Department of Energy
Department of Energy/Albuquerque Operations Office
Department of the Interior
Director of Military Support
Department of the Navy
Department of State
Department of Transportation
Defense Threat Reduction Agency
Deputy Under Secretary of Defense (Policy)/Emergency Planning
Environmental Impact Statement
End of exercise
Executive Order
Emergency Operations Center
Environmental Protection Agency
Environmental Response Team/Emergency Response Team
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ESF
EXPLAN
fax
FDA
FEMA
FRERP
FRMAC
FRP
FTX
FX
HAZMAT
HHS
HQ/HQs
ICC
ICP
IPC
JCP
JETD
JHEC
JIC
JMEXS
JOC
JS
LFA
MCC
MOU
MRA
MSC
NAREL
NCP
NLT
NMCC
NRC
NRT
OAR
OASD(PA)
ODS
Emergency Support Function
Exercise Plan
Facsimile
Food and Drug Administration
Federal Emergency Management Agency
Federal Radiological Emergency Response Plan
Federal Radiological Monitoring and Assessment Center
Federal Response Plan
Field Training Exercise
Field Exercise
Hazardous materials
Department of Health and Human Services
Headquarters
Initial Concept Conference
Incident Command Post
Initial Planning Conference
Joint Command Post
Joint Exercise and Training Division
Joint Hazards Evaluation Center
Joint Information Center
Joint Master Exercise Schedule
Joint Operations Center
Joint Staff
Lead Federal Agency
Master Control Cell
Memorandum of Understanding
Manpower and Reserve Affairs
Media Simulation Cell
National Air and Radiation Environmental Laboratory (ORIA)
National Oil and Hazardous Substances Pollution Contingency Plan
No(t) later than
National Military Command Center
Nuclear Regulatory Commission
National Oil and Hazardous Substances Response Team
Office of Air and Radiation
Office of the Assistant Secretary of Defense (Public Affairs)
Ordnance Delivery Schedule
B-2
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OPA
OPNAV
ORIA
OSC
OSD
PA
PAG
PAO
PHS
POC
PROFLOW
R&IE
RERT
RFP
RPD
RRPM
SARA
SCCC
SOP
SOW
SRWG
STARTEX
SWG
TTX
USA
USAF
USDA
VIP
Oil Pollution Act
Naval Operations
Office of Radiation and Indoor Air
On-Scene Coordinator
Office of the Secretary of Defense
Public Affairs
Protective Actions Guide
Public Affairs Office(r)
Public Health Service
Point of contact
Procedural Flow Synopsis
Radiation and Indoor Environments National Laboratory
Radiological Emergency Response Team (ORIA)
Request for Proposal
Radiation Protection Division
Regional Radiation Program Manager
Superfund Amendments and Reauthorization Act
Simulation Cell Chief Controller
Standard Operating Procedures
Statement of Work
Site Restoration Working Group
Start of exercise
Scenario Working Group
Tabletop Exercise
U.S. Army
U.S. Air Force
U.S. Department of Agriculture
Very Important Person
B-3
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