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How can we test our pandemic plan? Testing your plan is an absolute necessity. A corporation that does not test and simulate its crisis response plan is putting itself at risk for magnifying the problem it will face. When a company actually simulates a crisis, it will often find that many aspects of the plan require modification.
By simulating an influenza pandemic, you put the pandemic plan to the test. These simulations will not only assess its physical security, but also how the organization might communicate with each of its constituent audiences as the hypothetical pandemic crisis unfolds and escalates. During a simulation, the planning weaknesses will surface, and you can adjust your plan accordingly, before an actual crisis spins out of control.
There are three separate methods of testing your pandemic plan:54
- The Tabletop Exercise
- The Functional Exercise
- The Full-Scale Simulation
The following are summaries of each of these types of pandemic planning tests.
Tabletop Exercise
Purpose
A tabletop exercise is a facilitated analysis of an emergency
situation in an informal, stress-free environment. It is designed to elicit constructive
discussion as participants examine and resolve problems based on existing operational
plans and identify where those plans need to be refined. The success of the exercise is
largely determined by group participation in the identification of problem areas.
Characteristics
There is only a minimal attempt at simulation in a tabletop exercise. Equipment is not used,
resources are not deployed, and time pressures are not introduced.
An example of a tabletop exercise is provided in the Tool Box, available at
http://training.fema.gov/EMIWeb/priv/g139.htm.
Format
The exercise begins with the reading of a short narrative, which sets the stage for the
hypothetical emergency. Then, the facilitator may stimulate discussion in two ways:
- Problem statements: Problem statements (describing major or detailed events) may be addressed either to individual participants or to participating departments or agencies. Recipients of problem statements then discuss the actions they might take in response
- Simulated messages: These messages are more specific than problem statements. Again, the recipients discuss their responses
In either case, the discussion generated by the problem focuses on roles (how the participants
would respond in a real emergency), plans, coordination, the effect of decisions on other
organizations, and similar concerns. Often maps, charts, and packets of materials are used to
add to the realism of the exercise.
Applications Tabletop exercises have several important applications. They:
- Lend themselves to low-stress discussion of coordination and policy
- Provide a good environment for problem solving
- Provide an opportunity for key agencies and stakeholders to become acquainted with one another, their interrelated roles, and their respective responsibilities
- Provide good preparation for a functional exercise
Leadership A facilitator leads the tabletop discussion. This person decides
who gets a message or problem statement, calls on others to participate, poses questions
and guides the participants toward sound decisions.
Participants The objectives of the exercise dictate who should participate. The exercise can involve many people and many organizations—essentially anyone who can learn from or contribute to the planned discussion items. This may include all entities that have a policy, planning, or response role.
Facilities A tabletop exercise requires a large conference room where participants can surround a table.
Time A tabletop exercise usually lasts from 1 to 4 hours but can be longer. Discussion times are open-ended, and participants are encouraged to take their time in arriving at in-depth decisions without time pressure. When the time is up, the activity is concluded. Although the facilitator maintains an awareness of time allocation for each area of discussion, the group does not have to complete every item in order for the exercise to be a success.
Preparation It typically takes about a month to prepare for a tabletop exercise. Preparation also usually requires at least one orientation and sometimes multiple exercises.
Functional Exercises
Purpose
A functional exercise is a fully simulated interactive exercise that tests the capability of
an organization to respond to a simulated event. The exercise tests multiple functions of the
organization’s operational plan. It is a coordinated response to a situation in a
time-pressured, realistic simulation.
Characteristics
A functional exercise focuses on the coordination, integration, and interaction of an
organization’s policies, procedures, roles and responsibilities before during, or after the
simulated event.
An example of a functional exercise is provided in the Tool Box, available at http://training.fema.gov/EMIWeb/priv/g139.htm.
Format This is an interactive exercise—similar to a full-scale exercise
without the equipment. It simulates an incident in the most realistic manner possible short of
moving resources to an actual site. A functional exercise is:
- Geared for policy, coordination, and operations personnel—the "players" in the exercise—who practice responding in a realistic way to carefully planned and sequenced messages given to them by "simulators." The messages reflect ongoing events and problems that might actually occur in a real emergency
- A stressful exercise because players respond in real time, with on-the-spot decisions and actions. All of the participants' decisions and actions generate real responses and consequences from other players
- Complex—Messages must be carefully scripted to cause participants to make decisions and act on them. This complexity makes the functional exercise difficult to design
Applications Functional exercises make it possible to test several functions
and exercise several agencies or departments without incurring the cost of a full-scale
exercise. A functional exercise is always a prerequisite to a full-scale exercise.
In some instances, taking part in a functional exercise may serve as a full-scale exercise
for a participating organization (e.g., a hospital may conduct its own full-scale exercise
as part of a community-based functional exercise).
Leadership and Participants Functional exercises are complex in their organization of leadership and the assignment of roles. The following general roles are used:
- Controller: Manages and directs the exercise
- Players: Participants who respond as they would in a real emergency. (Players should include policy makers; may include coordinators and operational personnel directing field activities)
- Simulators: Assume external roles and deliver planned messages to the players
- Evaluators: Observers who assess performance
Facilities It is usually conducted in the Emergency Operations Center (EOC)
or other operating center. Ideally, people gather where they would actually operate in an
emergency. Players and simulators are often seated in separate areas or rooms. Realism is
achieved by the use of telephones, radios, televisions, and maps.
Time A functional exercise requires from 3 to 8 hours, although it can run
a full day or even longer.
Preparation Plan on 6 to 18 months or more to prepare for a functional
exercise, for several reasons:
- Staff members need considerable experience with the functions being tested
- The exercise should be preceded by lower-level exercises, as needed
- The controller, evaluators, and simulators require training
- The exercise may require a significant allocation of resources and a major commitment from organizational leaders
Full-Scale Exercise
Purpose
A full-scale exercise simulates a real event as closely as possible.
It is an exercise designed to evaluate the operational capability of emergency management
systems in a highly stressful environment that simulates actual response conditions. To
accomplish this realism, it requires the mobilization and actual movement of emergency
personnel, equipment, and resources. Ideally, the full-scale exercise should test and
evaluate most functions of the emergency management plan or operational plan.
Characteristics
A full-scale exercise differs from a tabletop or functional exercise in that it coordinates
the actions of several entities, tests several emergency functions, and activates the EOC
or other operating center. Realism is achieved through:
- On-scene actions and decisions
- Simulated “victims”
- Search and rescue requirements
- Communication devices
- Equipment deployment
- Actual resource and personnel allocation
Format The exercise begins with a description of the event, communicated
to responders in the same manner as would occur in a real event. Personnel conducting
the field component must proceed to their assigned locations, where they see a "visual
narrative" in the form of a mock emergency. From then on, actions taken at the scene
serve as input to the simulation taking place at the EOC or operating center.
Applications Full-scale exercises are the ultimate in the testing of
functions—the "trial by fire." Because they are expensive and time consuming, it is
important that they be reserved for the highest-priority hazards and functions.
Leadership and Participants One or more controllers manage the exercise,
and evaluators are required. All levels of personnel take part in a full-scale exercise:
- Policy personnel
- Coordination personnel
- Operations personnel
- Field personnel
Facilities The event unfolds in a realistic setting. The EOC or other
operating center is activated, and field command posts may be established.
Time A full-scale exercise may be designed to be as short as 2 to 4
hours, or to last as long as 1 or more days.
Preparation Preparation for a full-scale exercise requires an extensive
investment of time, effort and resources—1 to 1.5 years to develop a complete exercise
package. This timeframe includes multiple drills and preparatory tabletop and functional
exercises. In addition, personnel and equipment from participating agencies must be
committed for a prolonged period of time.
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