South Central Task Force WIDE VIGILANCE III FSE After-Action Report Executive Summary ARWG SAREX Module

Transcription

1 Homeland Security Exercise and Evaluation Program South Central Task Force WIDE VIGILANCE III FSE After-Action Report Executive Summary

2 Purpose The purpose of this Executive Summary is to provide a summary of the findings and recommendations that were developed from data collected at the South Central (PA) Task Force Wide Vigilance III: Amateur Radio Work Group Search and Rescue Exercise Module (SCTF WVIII: ARWG SAREX). This report should be seen as establishing the current baseline of the response capabilities of the agencies and jurisdictions participating in the exercise and not as a direct analysis of individual job performance. Exercise Overview The SCTF WV III: ARWG SAREX involved regional, local, volunteer, and private response agencies and facilities in a two day operations-based exercise focused on training both first responders and volunteer emergency support organizations on integrating into a single Incident Command Structure while educating each other on the various organizations strengths and resources. Through this integration all participants were able to validate plans, policies, and procedures, and receive direct or indirect training on search and rescue operations. The scenario was consistent with local Exercise Planning Team (EPT) and the overarching SCTF Wide Vigilance III scenario. During the course of planning, the EPT identified three Target Capabilities that would form the basis of the exercise objectives and Evaluation Plan (EVALPLAN). The EPT determined that a focus on Communications, On-site Incident Management, and Search and Rescue (Land Based) were most important in achieving its stated purpose. These Target Capabilities allowed a thorough exploration of current plans, policies, and procedures as they apply to a search and rescue incident. The final scenario settled upon by the planning committee was a search and rescue operation initiated by the United States Air Force through the Civil Air Patrol. Multiple electronic locator transmitters (ELTs) were sounding as a result of a hurricane impacting the region. Additionally, one of these ELTs was reported as being from a missing aircraft. Due to the storm and other operational requirements using up resources prior to the search and rescue operation being initiated, CAP resources were insufficient to handle the mission assignment alone. CAP coordinated with the Pennsylvania Emergency Management Agency and Lebanon County Emergency Management Agency to request support. Simultaneously, Lebanon County was experiencing communications issues at vital facilities. Good Samaritan Hospital and the Lebanon Veterans Administration Hospital both requested RACES support from Lebanon EMA. By the end of day one, two search and rescue teams (Middle Creek Search and Rescue of Lancaster County and Cumberland County Search and Rescue), the SCTF Amateur Radio Work Group called upon to support overtaxed Lebanon County Amateur Radio Emergency Service (ARES ) and Radio Amateur Emergency Service (RACES) resources and local fire and EMS units from Lancaster and Lebanon Counties were activated to support operations in Lebanon County. 2

3 The EPT initially met in March 2010 to begin this process and met monthly through August 2010 in order to finalize preparations for the exercise. The exercise was delivered on September 24 and 25, 2010, at the Pennsylvania Civil Air patrol Wing Headquarters, Cedar Crest High School, the Lebanon County Emergency Operations Center, Good Samaritan Hospital and the Lebanon Veterans Administration Hospital in Lebanon County, PA, the J. Edward Mack Scout Reservation on the Lebanon and Lancaster County line, and the Pennsylvania Emergency Management Agency Emergency Operations Center in Dauphin County. Critical to the success of the exercise and the planning efforts leading up to it was the leadership exhibited by the Lebanon County Emergency Management Agency and the support of the SCTF Exercise Work Group. During the planning process, planners recognized that it was crucial to focus strictly on the coordination amongst the various volunteer and public safety organizations and how they would work as a single team on a large scale search and rescue operations. The most remarkable aspect of this was that most of these groups had never worked together before. A lot of time in planning meetings was spent figuring out how the operation may be conducted assisting groups in identifying lessons learned even before the exercise began. Based on the discussions and lessons learned, the EPT members worked together to identify a common set of objectives for the exercise. Each objective was based on an activity identified within the Target Capabilitybased Homeland Security Exercise Evaluation Program (HSEEP) Exercise Evaluation Guides (EEGs) as selected by the EPT. These objectives are the focus of the evaluation that was conducted at the exercise. Below are the exercise objectives and identification as to whether they were achieved or not. Communications SCTF Amateur Radio Work Group (ARWG) Activity 1: Alert and Dispatch 1. Determine the ability to activate SCTF ARWG communications in support of a search and rescue event. Activity 2: Provide Emergency Operations Center Support 1. Determine the ability of volunteer groups and public safety agencies to implement incident communications interoperability plans and protocols during a search and rescue event. 2. Evaluate the ability of volunteer groups and public safety agencies to coordinate incident site communications to be consistent with the NIMS framework during a search and rescue event. 3. Assess how volunteer groups and public safety agencies report and document search and rescue incidents by completing and submitting required forms, reports, documentation, and follow-up notations. 4. Test the ability of volunteer groups and public safety agencies to implement both primary and back-up communications systems during a search and rescue operation 3

4 Civil Air Patrol Activity 2: Provide Emergency Operations Center Support 1. Evaluate the ability of CAP to establish a communications net via simplex and repeater systems to communicate with ground teams from an aircraft using mobile and portable radio equipment during a search and rescue event. 2. Determine the feasibility of deploying an amateur radio repeater aboard CAP aircraft for coverage in remote areas during a search and rescue event. 3. Evaluate the degree of interoperability which exists and methods for addressing gaps which exist between CAP and other agencies during a search and rescue event. Middle Creek Search and Rescue (Middle Creek SAR) Activity 2: Provide Emergency Operations Center Support 1. Evaluate interoperable communications with other volunteer and first response agencies as implemented during a search and rescue mission. Lebanon County ARES /RACES Activity 1: Alert and Dispatch 1. Determine the ability to activate Lebanon County ARES/RACES personnel in support of a search and rescue event. Activity 2: Provide Emergency Operations Center Support 1. Evaluate the ability of Lebanon County ARES/RACES to provide communications support and interoperability to multiple agencies during a search and rescue event. 2. Evaluate how Lebanon County ARES/RACES executes technical and operational communications assignments during a search and rescue event. 3. Assess the ability of Lebanon County ARES/RACES to coordinate operations and resources within an Incident Command Structure during a search and rescue event. Activity 3: Return to Normal Operations 1. Demonstrate the ability of Lebanon County ARES/RACES personnel to properly demobilize following the completion of search and rescue operations. Onsite Incident Management All Organizations Activity 2: Establish Full On-site Incident Command 1. Determine the ability to establish and operate either an Incident Command Post or Unified Command Post at a Search and Rescue incident. 4

5 Activity 4: Develop an Incident Action Plan (IAP) 1. Determine the ability to develop an initial incident action plan for a Search and Rescue incident. Activity 5: Execute Plan 1. Determine the ability to implement an incident action plan during a Search and Rescue incident. Activity 6: Evaluate/Revise Plans 1. Determine the ability to follow the Planning P when developing subsequent incident action plans during a Search and Rescue incident. Middle Creek Search and Rescue Activity 2: Establish Full On-site Incident Command 1. Demonstrate the ability to properly integrate into and operate within a Unified Command during a search and rescue mission. 2. Demonstrate the proper procedures for transition of command during a shift change while operating within a search and rescue mission environment. Search and Rescue (Land Based) Cumberland County Search and Rescue (CCSAR) Activity 1: Activate Search and Rescue 1. Determine the ability to initiate mobilization procedure in response to a Search and Rescue incident. 2. Determine the ability to transport team personnel and equipment to an incident scene outside of Cumberland County in response to a Search and Rescue incident. Activity 2: Direct SAR Tactical Operations 1. Determine the ability to plan and coordinate Search and Rescue operations with other Search and Rescue teams, first responders and support groups at an incident site during a Search and Rescue event. 2. Determine the ability to participate in the Search and Rescue planning process and operational briefings during a Search and Rescue event. Activity 5: Search 1. Determine the ability to report the progress of search efforts on a regular basis to the Search and Rescue lead during a Search and Rescue event. Activity 7: Provide Medical Treatment 1. Determine the ability to transfer victims to more definitive medical care during a Search and Rescue event. 5

6 Civil Air Patrol Activity 1: Activate Search and Rescue 1. Evaluate the ability of ground teams to deploy for a mission with correct equipment during a search and rescue event. Activity 2: Direct SAR Tactical Operations 1. Evaluate the CAP command staff on knowledge and implementation of procedures both CAP and Incident Command and the efficiency of shift changes during a search and rescue event. Activity 5: Search 1. Evaluate CAP ground team ability to use Direction Finding Equipment to locate and turn off an ELT. 2. Evaluate CAP ground team ability to set-up a secure perimeter around a downed aircraft site and help with survivors. Middle Creek Search and Rescue Activity 1: Activate Search and Rescue 1. Demonstrate the ability to conduct intra-team notifications upon activation for a search and rescue mission. Activity 8: Demobilize/Redeploy SAR 1. Demonstrate the ability to demobilize the team after the conclusion of a search and rescue mission. There were assumptions and artificialities made that did impact the exercise. The most significant of these is that these groups would be working together. Previous to the exercise there had been a very limited number of opportunities for some, and none for most, to work together. Only the CAP had ever responded to aircraft search and rescue missions. The opportunity to work together was seen as a benefit to all groups from both the educational and operational perspective. Additionally the initial staging area was established as Cedar Crest High School as the most central point to gather the units from around the region with ample safe parking. The move to Camp Mack was necessitated because of limited availability of the school and the intention of the exercise planners to use Camp Mack for the ground search operations and crash site. All planning arrangements for logistics to support the drill were based around Camp Mack. While this was communicated to the exercise command staff, it was done insufficiently well by exercise staff and thus some confusion occurred at the beginning of the exercise. A final artificiality was limited operational staff at the PA Civil Air Patrol Wing Headquarters prior to the mission assignment. Given the nature of the pre-exercise hurricane the Wing 6

7 Headquarters would have been fully operational and had a greater level of planning engagement for this mission. Given what planners wanted to assess, having most planning done in the field was a significant deviation from CAP operational norms and thus impacted decision making. Exercise Planning Team Name Call Sign Exercise Role Agency Daniel Sullivan KO1D Senior Venue Controller SCTF ARWG Chief William Boose N3WST Deputy Senior Venue Controller Middle Creek SAR Daniel Kauffman Player Lebanon County EMA Gerald Burke Logistical Support Lebanon County EMA Brian Burke Logistical Support Lebanon County EMA Sandy Goodman N3ECF SIMCELL/ Participant SCTF ARWG Dick Goodman WA3USG Controller/ Evaluator SCTF ARWG Lt. Col. Robert Meinert Controller/ Evaluator Civil Air Patrol Major Don Inscho N3OSO Logistical Support Civil Air Patrol Captain Skip Walls N3JOW Participant Civil Air Patrol Captain Ron Small WB2OOB Controller/ Evaluator Middle Creek SAR Charles Roesner KB3MQJ Controller/ Evaluator Cumberland County SAR Karen Clemens Logistical Support American Red Cross Gary Guare Player Boy Scouts of America Rick Hamm KB3SCB Overall Senior Controller SCTF Exercise Work Group William Daub K3BFD Player Lebanon County ARES/RACES Bob Howard KB3QAQ Player/ Volunteer Coordinator Lebanon County ARES/RACES Joe Ryan KB3POC Logistical Support American Red Cross Peg Hamm KB3SCA Operations Support SCTF Exercise Work Group Jeff Strauss Player Brickerville Fire Company Kurt Herzer Player Brickerville Fire Company Major Strengths Three major strengths were identified during this exercise: Perseverance. Participants were challenged by terrain, communications issues, and a lack of understanding what each group s capabilities were. They took on that challenge and identified a way to accomplish their mission of saving lives and shutting down all six ELTs. Networking. For many participants, this was the first time they had interacted with their counterparts from other agencies. Pre-incident networking goes a long way to improving communications and expediting resolutions to problems, and needs to be further encouraged. The most obvious example was the Cumberland County Search and Rescue Team. They faced many obstacles resulting in limited play for them compared to 7

8 what their planner anticipated. They still used the opportunity to learn as much as they could from their peers and identify opportunities to improve their operations and participate more in joint training after the exercise. Multi-agency Coordination. In the feedback forms a Pennsylvania CAP Cadet said it best: Multi-agency Coordination Works. The operation was not necessarily textbook in its evolution and approach, nor was it always smooth but the mission was accomplished and all personnel remained safe. Given a lack of experience working together each group should take pride in knowing they found a way to work as a team to approach a given problem. Primary Areas for Improvement Throughout the exercise series, several opportunities for improvement were identified. The three primary areas for improvement, including recommendations, are as follows: Incident Command. There were many issues with implementing and executing a strong command structure. Some of this may have been due to artificialities of an exercise environment, others because of a lack of awareness and training. It would benefit all senior leaders from participating organizations to revisit this scenario again and walk through establishing a proper command structure in the field and identifying how each part of the Command and General Staff works to support each other. Communications. Unlike many exercises it was not that communications did not work, it was they were not coordinated. There were a significant number of communications resources available to participants. CAP had air based and ground based systems. Amateur Radio operators had various VHF/UHF systems. Public Safety had analog and digital VHF/UHF systems. There was a need to assign a Communications Unit Leader to manage these systems, maximize their use and minimize the interference problems that resulted from planning decisions made by the amateur radio service users. Crash Site Management. Once the patients were found no security perimeter was established nor was a containment effort enforced even though resources for both were available. Additionally, once the victims were found and the first rescue effected, the victims were left to their own devices for over 30 minutes until another team of rescuers arrived. Site management should be a focus of future training. Ensuring patient care is maintained and the site is well secured and maintained should be reinforced. Exercise Outcome This was an exercise of firsts and as a result there was a lot learned before and during the exercise. If we look at the objectives for each group in a rapid analysis we can gain a good picture of the outcome of the exercise. SCTF Amateur Radio Work Group The SCTF ARWG did alert and activate a Strike Team of 13 personnel to support Lebanon County ARES /RACES. It did not follow the written protocols due to issues with the protocol discovered during the planning for the exercise. This must be addressed as a corrective action. 8

9 It also demonstrated the use of both primary and secondary systems in support of an incident successfully. The SCTF ARWG does need to work on interoperability plans, integrating various groups within a NIMS environment, and what forms to use. A Communications Unit with a Communications Unit Leader would have gone a long way to resolving some of the issues. As far as the forms, the SCTF and composite groups must agree to one set of forms for everyone to use so communicators know what they are supposed to use to handle message traffic. Civil Air Patrol The Civil Air Patrol was able to communicate between the ground and a privately donated aircraft during the drill. This aircraft successfully vectored teams to various emergency located beacon areas where the teams then used their gear to sniff out the transmitter. However, they too could have benefitted from a strong Communications Unit focused on interoperable communications to address inter-service communications gaps. Significant problems with Incident Command did occur. Further joint training and a review of the Incident Command System, specifically the ICS-300 course skill sets, will aid in addressing this area. The biggest challenge faced by CAP was the unwillingness of FEMA to reimburse CAP for expenses related to using an airframe for the day. This prevented some ELT tracking training and photo-recon missions of the area as well as flying an amateur radio repeater aboard the aircraft to assist with on-site communications. This issue needs to be addressed before future exercises so CAP can fully engage in exercises and coordinate with their served agencies properly. Middle Creek Search and Rescue Middle Creek Search and Rescue had interoperable communications with other amateur radio service users because they were on the amateur radio service. As with all amateur radio service users, there was no observed interoperability solutions employed between Middle Creek SAR and non-amateur radio service groups. Middle Creek SAR tried to set up an integrated communications center, but was rebuffed by the Incident Commander. It is MIDSAR s SOP to have a representative of all communications systems in use be collocated in one area so they can coordinate. It does merit noting that typical public safety interoperability solutions cannot be used. The interoperability comes at a manual level where message traffic can be received by someone on one radio service and resent by that person or another licensee on the other radio service. This is necessary due to the rules and regulations put forth by the Federal Communications Commission and the National Telecommunications and Information Agency. Middle Creek did an excellent job activating their membership and establishing a command structure at Camp Mack in support of CAP as outlined within their operational documentation. Lebanon County ARES /RACES Lebanon County mustered 8 personnel to support the county and staffed the EOC, two hospitals and provided overall leadership for the amateur radio operators supporting the SAR 9

10 operations. They did not get integrated into the command structure and were often lacking information and guidance from senior commanders. While Lebanon County ARES /RACES did a commendable job working with the SCTF ARWG, and reaching out to other groups it is clear that a lot more must be done to train non-amateur radio personnel on what amateur radio operators are capable of and how to integrate them into an incident. Summary In summation the drill will establish a new level of coordination in planning and training for all the participants. Many discussions have occurred as a result of this exercise involving future efforts. It would benefit the groups and region to further build both communications and SAR depth and skills within the region. The SCTF has been supportive of amateur radio groups through the Amateur Radio Work Group, with the extensive game lands, state parks, and open woodlands within and surrounding the region nurturing these groups and providing them with a forum to continue working together and with fire, rescue and law enforcement units involved with SAR operations would provide equally beneficial results. 10

11 Part A: Exercise Statistics Exercise Details Exercise Name South Central Task Force Wide Vigilance III: Amateur Radio Work Group Search and Rescue Module (WV III: ARWG SAREX) Type of Exercise Full-Scale Exercise Start Date September 24, 2010 Exercise End Date September 25, 2010 Duration Sixteen hours Locations J. Edward Mack Scout Reservation Newmanstown, PA Lebanon County Emergency Operations Center Lebanon, PA Pennsylvania Civil Air Patrol Wing Headquarters Ft. Indiantown Gap, PA Good Samaritan Hospital Lebanon, PA Lebanon County Veterans Affairs Hospital Lebanon, PA Pennsylvania Emergency Management Agency Harrisburg, PA Cumberland County Public Safety Carlisle, PA Lancaster County Public Safety Manheim, PA 11

12 Sponsor South Central Task Force Program Homeland Security Grant Program Mission Response Capabilities Communications On-Site Incident Management Search and Rescue (Land Based) Scenario Type Hurricane/Search and Rescue/Aircraft Crash Participating Organizations Federal US Department of Defense o Pennsylvania Wing Civil Air Patrol US Department of Veterans Affairs Commonwealth o Lebanon Veterans Administration Hospital Pennsylvania Emergency Management Agency Regional o Auxiliary Communications Service South Central Task Force County/Local Amateur Radio Work Group Hospital Emergency Amateur Radio Service Cumberland County o Department of Public Safety Lancaster County Search and Rescue Team 9-1-1/Dispatch 12

13 o Emergency Management Agency o 9-1-1/Dispatch Lebanon County o Amateur Radio Emergency Service (ARES )/RACES o Emergency Management Agency o 9-1-1/Dispatch Private/Non-Governmental The American Red Cross of Lebanon County Middle Creek Search and Rescue Brickerville Fire Company Durlach and Mt Airy Fire Company Elco High School Immanuel United Methodist Church Meyerstown First Aid Unit Schaefferstown Fire Company Schaefferstown EMS Good Samaritan Hospital Boy Scouts of America J. Edward Mack Scout Reservation Number of Participants Participants: 112 Controller/Evaluators/Staff: 24 Actors: 13 VIPs: 5 13