ADMINISTRATIVE HANDLING INSTRUCTIONS

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2 ADMINISTRATIVE HANDLING INSTRUCTIONS 1. The title of this document is the 2012 After-Action Report/Improvement Plan (AAR/IP). 2. The information gathered in this AAR may be sensitive and should not be disclosed as public information. This document should be handled and transmitted in accordance with appropriate security directives. Reproduction of this document, in whole or in part, without prior approval from the (SPA) is prohibited. 3. This AAR will be disseminated on a need-to-know basis only and should be stored on a secure drive or in an area offering sufficient protection against theft, compromise, inadvertent access, and unauthorized disclosure. 4. For more information, please consult the following primary points of contact (POCs): Primary POC s: Exercise Director: Robert Stoffel, Chair Orange County Communications 840 N. Eckhoff St. Suite 104 Orange, CA (714) Robert.Stoffel@comm.ocgov.com Exercise Support: Denise Davis Willdan Homeland Solutions 2401 E. Katella Avenue Suite 220 Anaheim, CA (714) Ddavis@willdan.com 2

3 CONTENTS ADMINISTRATIVE HANDLING INSTRUCTIONS...i CONTENTS...3 EXECUTIVE SUMMARY...4 SECTION 1: EXERCISE OVERVIEW...6 SECTION 2: EXERCISE DESIGN SUMMARY...9 SECTION 3: ANALYSIS OF CAPABILITIES SECTION 4: CONCLUSION

4 EXECUTIVE SUMMARY On Tuesday, October 9, 2012, the s Communications Exercise was conducted from 8:00 AM to noon. The purpose of the exercise was to create an environment for public safety agencies to test interoperable communications systems, equipment, and procedures to resolve issues and improve communications operability and interoperability. This communications exercise will better prepare the participating agencies to meet the challenges of future more complex exercises, or a real world incident. The Southern Planning Area (SPA) will then apply the best practices and lessons learned from the preparedness exercise to improve its interoperable communications capabilities across the SPA region. The was conducted in three operational areas of the SPA. Leaders within those operational areas agreed to host the exercise by securing a site in their county, preparing site specific plans, set-up diagrams, and performing the radio channel/frequency testing. The points of contact for each host site served as the Exercise Planning Team (EPT). Additional coordination required for the planning and coordination support to accomplish the exercise was provided by Willdan Homeland Solutions. The exercise objectives were created for the SPA region, although individual sites had variations specific to their locations, the channels/frequencies tested, the agencies involved, and the equipment present for the exercise. The objectives were developed to align with the core capabilities for communications which include the capacity to communicate with the emergency response community through interoperable voice and data communications, and the ability to reestablish sufficient communications infrastructure within the affected areas to support ongoing life-sustaining activities, provide basic human needs, and transition to recovery. The EPT shaped the exercise around three primary exercise goals which were to: Establish communications links between the participating agency s respective systems; Allow agency personnel to gain knowledge of the types of equipment that neighboring agencies have; and Evaluate failures to communicate and resolve interoperability issues across the SPA. The EPT assisted in the development and approval of the exercise objectives stated below: Objective 1: Develop field operational experience in the setup and operation of interoperable communications equipment. Objective 2: Provide opportunities to test and exercise interoperability frequencies, channels, and talkgroups within Operational Areas and across the SPA region. Objective 3: Develop, modify, and/or enhance interoperability communications operational procedures based on exercise results. Objective 4: Exercise the ability to communicate to include redundant means of communications. Objective 5: Develop strategies based on drill results that will enhance development of a regional communications plan. 4

5 The purpose of this report is to analyze exercise results, identify strengths to be maintained and built upon, identify potential areas for further improvement, and support development of corrective actions. Major Strengths The major strengths identified during this exercise are as follows: The exercise was well organized, with clear and concise directions and expectations, and was conducted on time as scheduled. The equipment showcase was fantastic and many participants stated the systems testing went well and was fully functional. Participants stated they learned a lot about different channels and their purpose, and their confidence in radio systems interoperability increased based on their experience in the exercise. The majority of participants recommended that the exercise become an annual event for the SPA. Site briefings and debriefings were beneficial for all participants. Primary Areas for Improvement Throughout the exercise, several opportunities for improvement in the SPA were identified. The primary areas for improvement, including recommendations, are as follows: The administrative aspect of planning for the exercise could be improved; several agency RSVP s did not get to the site Point of Contact (POC); the RSVP deadline should be pushed out further (up to a month prior to the event) to allow planning time and participant planning review time. A meeting to compare site plans between site coordinators should take place to ensure that equipment, such as repeaters, will not interfere with testing at other sites. Through confusion, Riverside was testing off of Santiago Peak much of the time, and they thought they were on Box Springs. Adequate planning time is needed to coordinate the varied channel loads of the different disciplines that participated. One site had problems experienced in the use of gateways, both from an operator and technical stand point. A recommendation was made to focus on the use of gateways in a subsequent exercise. Backup communications plans should be developed and distributed to participants ahead of time. All plans should go out sooner to participants. Overall, the exercise was successful. The goals and objectives outlined by the Exercise Planning Team were met, and the exercise provided useful knowledge and experience for all participants. Future exercises should continue to develop a better understanding of the importance of interoperable communications capabilities, procedures, and use of interoperability equipment. 5

6 Exercise Details SECTION 1: EXERCISE OVERVIEW Exercise Name 2012 Type of Exercise Functional Exercise Start Date October 9, 2012 Duration Four hours; 08:00 hours to 12:00 hours Location Orange County site: Knott s Berry Farm Hotel Riverside County site: Ben Clark Training Center San Diego County site: Qualcomm Stadium Sponsor CalSIEC Program Interoperable Emergency Communications Grant, Fiscal Year 2010 Mission Response Capabilities Communications Exercise Planning Team Robert Stoffel, Orange County Sheriff s Communications Dale Digiambattista, Riverside County Sheriff s Department Jeff Hebert, San Diego County Sheriff s Department Denise Davis, Willdan Homeland Solutions Participating Organizations Los Angeles OA Los Angeles Sheriff s Department El Segundo Police Department Manhattan Beach South Bay Regional Communications Center (RCS) 6

7 Orange County OA Anaheim Police Department Cal EMA Cal Trans Huntington Beach Police Department Newport Beach Police Department Operation OC Orange County Emergency Medical Services Orange County Fire Authority Orange County Sheriff s Department (Samantha II) Orange County Sheriff s Department (RACES) Orange County Sheriff s Department (OASIS Trailer) Orange County Sheriff s Department (Incident Support Trailer) Santa Ana Police Department West-Comm Communications Center AT&T Remote Mobility Zone (ARMZ) Unit Riverside OA American Medical Response Riverside Bureau of Alcohol, Tobacco, Firearms and Explosives Cal EMA Murrieta Police Departments Murrieta Fire Departments Ontario Police/Fire Palm Springs Police Department Palm Springs Fire Department University of CA, Riverside Police Riverside Police Dept. Moreno Valley Police Dept. Corona Fire Dept. Riverside County Public Health Riverside County EMS Riverside County Fire / Cal Fire Indio Police Department Riverside County Sheriff s Department San Bernardino OA Cal State University San Bernardino Police Department San Bernardino County Fire Department San Bernardino Police Department San Diego OA Cal EMA CHP Border Division Escondido Police FEMA US&R Task Force CATF8 7

8 San Diego Fire San Diego Harbor Police San Diego Police San Diego Regional 3Cs San Diego Sheriff San Diego Imperial County Regional Communications System San Marcos Fire United States Border Patrol, Imperial United States Border Patrol, San Diego 8

9 SECTION 2: EXERCISE DESIGN SUMMARY Exercise Purpose and Design The purpose of the exercise was to create an environment for public safety agencies to test interoperable communications systems, equipment, and procedures to resolve issues and improve communications operability and interoperability, and to better prepare the participating agencies to meet the challenges of future more complex exercises, or a real world incident. The exercise was designed to establish a learning environment for players to exercise and test communications interoperability between agencies, and interoperability equipment in order to: Identify the strengths within current interoperability communications capabilities of the to be maintained and built upon; Identify opportunities for improvements in communications interoperability plans, equipment, procedures, and skills; Identify and clarify potential issues that may be resolved by further discussion. Exercise Objectives, Capabilities, and Activities Capabilities-based planning allows for Exercise Planning Teams to develop exercise objectives and observe exercise outcomes through a framework of specific action items that were derived from the Core Capabilities. The Communications Core Capability is divided into two objectives: 1. Ensure the capacity to communicate with both the emergency response community and the affected populations and establish interoperable voice and data communications between Federal, state, and local first responders. 2. Re-establish sufficient communications infrastructure within the affected areas to support ongoing life-sustaining activities, provide basic human needs, and transition to recovery. In order to exercise the communications core capability targets, the provided a venue to establish common usage procedures, verify use of interoperability channels and equipment regionally, and understand the different communications systems in use within the SPA. This exercise allowed participating agencies to stage their mobile communications equipment to a central site in order to: Establish communications links between their respective systems Allow agency personnel to observe the types of equipment that neighboring agencies have available Evaluate failures to communicate and resolve interoperability issues The exercise planning team decided to demonstrate communications capabilities and associated activities through the following objectives during the exercise: 9

10 Objective 1: Develop field operational experience in the setup and operation of interoperable communications equipment. Objective 2: Provide opportunities to test and exercise interoperability frequencies, channels, and talkgroups within Operational Areas and across the SPA region. Objective 3: Develop, modify, and/or enhance interoperability communications operational procedures based on exercise results. Objective 4: Exercise the ability to communicate to include redundant means of communications. Objective 5: Develop strategies based on drill results that will enhance development of a regional communications plan. The exercise activities and tasks conducted at the exercise that correlate to the objectives are as follows: 1. Conduct a radio check-in of participating agencies. 2. Setup and test functional operations of interoperable communications equipment 3. Ensure that all communication networks are functioning. 4. Test radios in all planned frequency bands. 5. Test and exercise interoperability frequencies within the individual counties/operational Area. 6. Test the communications linking between the participating counties, including Riverside, San Diego and Orange. 7. Use of common response communication language (i.e., plain English) to ensure information dissemination was clear, acknowledged, and understood by all receivers. 8. Utilize and test alternative solutions to communications interoperability, such as gateways and console patching. 9. Testing results include information to develop strategies based on exercise results that will enhance development of a regional communications plan. 10

11 SECTION 3: ANALYSIS OF CAPABILITIES This section of the report reviews the performance of the exercised capabilities and activities. In this section, observations are organized by objectives and associated activities. The exercise objectives are listed below, followed by corresponding activities. Each activity is followed by related observations, which include analysis, and recommendations. Objective 1: Develop field operational experience in the setup and operation of interoperable communications equipment. Summary: Emergencies and disasters happen without notice and the ability to communicate is a critical capability for the job performance and safety of an emergency responder. There needs to be sufficient personnel trained with the technical knowledge to set up mobile communications equipment and familiarity with the procedures to implement interoperable communications between agencies. Responders must check in as they arrive at an incident to ensure their radios are operable and that they are integrated into the communications system for the incident response. Activity 1: Conduct a radio check-in of participating agencies. Observation: Strength. Participating agencies completed check-in and set up their vehicles according to the site plan for each location. A roll call was conducted at each individual site to verify those agencies in attendance. Analysis: At the Orange County site, directions were given to agencies to check-in two miles out from the location. All participants that returned evaluation forms stated the check-in and vehicle set up was very well organized and performed exactly as planned. At the Riverside site arriving participants checked in with the volunteers at the entrance to the fire drill grounds. Their arrival was radioed to RSO dispatchers in RSO MCP-West, who tracked the arrivals, as the volunteers directed the participants to the proper spot. There was a facilities issue in Riverside with construction crews trying to repair a busted water line under training grounds, but the issue was overcome, and the parking plan worked very well. Recommendations: At subsequent exercises, continue the practice of pre-arrival check-in with staff assisting in tracking the participating agencies and directing them to the location to set up their vehicles and equipment. Activity 2: Setup and test functional operations of interoperable communications equipment Observation: Strength. All participating agencies were able to setup their equipment and conduct the radio testing. Analysis: There was no reported communications equipment or power failures that prevented an agency from successfully participating. Recommendations: Continue to prepare a parking plan/site map for participating agencies and ensure ample set-up time is given so that critical site assets can be in place and ready to go well in advance of the event. 11

12 Activity 3: Ensure that all communication networks are functioning. Observation: Strength. All participating agencies were able to transmit and receive communications on the networks, even though a small percentage was not able to test specific channels/frequencies. Analysis: Communications equipment must be tested initially to ensure the incident s systems are operational, including the networks, repeaters, remotes, gateways, etc. that will enable responders to communicate at the incident. Recommendations: Include the priority to test networks and systems for operability prior to establishing incident communications in all procedures and policies. Objective 2: Provide opportunities to test and exercise interoperability frequencies, channels, and talkgroups within Operational Areas and across the SPA region. Summary: The exercise included a test of all Channels / Frequencies, programmed into vehicle/radio(s) that were used during the exercise, between agencies within a given Operational Area; and a test of all interoperability Channels / Frequencies between the Operational Areas participating in the exercise. It is critical that agencies can communicate with each other within a specific area, i.e., countywide, but also across county borders to other agencies within a region. Activity 4: Test radios in all planned frequency bands. Observation: Strength. The radio test plans at each site were conducted successfully. Analysis: Each County followed a scripted radio test on a wide variety of interoperable channels in all public safety frequency bands in roll call fashion, based on their County requirements. Then a County to County test was conducted, also following a script with one agency serving as Net Control. Each participating agency was encouraged to keep a log of the channels/frequencies that they were able to successfully transmit and receive on. This method of radio testing was very effective. Recommendations: No alternative methods of radio testing were suggested so the recommendation is to continue in this method of radio testing. Activity 5: Test and exercise interoperability frequencies within the individual Operational Areas. Observation: Area for Improvement. One site had difficulty in the test plan due to using multiple channels, gateways, and fixed infrastructure to access remote locations. Analysis: The channel availability in the fixed infrastructure was very challenging to plan around and match up to the capabilities of all off site participants. Recommendations: Narrow the focus on what technical aspect is being proved. Trial runs with agencies planning to participate would be beneficial for all. Activity 6: Test the communications linking between the participating counties, to include 12

13 Riverside, San Diego and Orange. Observation: Area for Improvement. Cal EMA provided critical support by creating interoperability net via WAIS to other Sites (Orange, San Diego, and Riverside- San Bernardino Counties). This afforded Cal EMA the ability to test deployment and use of the WAIS system in a robust manner and demonstrate the ability for local agencies to access the system. The test between Orange County and Riverside County was acceptable, however some transmission quality issues were noted. Orange County was not able to communicate with San Diego County during this portion of the test. Analysis: The use of Cal EMA to provide a communications link between the Operational Areas of Orange County, Riverside County, San Bernardino County, and San Diego County is a viable consideration. Strategically, this was an important test and served to verify that interoperability exists between these counties in the event of a regional emergency or disaster. Recommendations: Continue to include Cal EMA, and other state and federal agencies in SPA exercises to practice interoperability as part of statewide system, and to fulfill objectives in the California Statewide Communications Interoperability Plan and National Emergency Communications Plan. Fine tune the equipment and procedures to be able to demonstrate a successful test between all counties in the SPA. Objective 3: Develop, modify, and/or enhance interoperability communications operational procedures based on exercise results. Summary: The exercise provided a venue to test basic operability and interoperability of channels, talkgroups, and communications specific equipment for the to determine the need for evaluation and modification of existing operational procedures for individual agencies and within an operational area. Activity 7: Use of common response communication language (i.e., plain English) to ensure information dissemination was clear, acknowledged, and understood by all receivers. Observation: Area for Improvement. At times during the radio testing, participants used radio code (10-2; receiving well) instead of plain English. Analysis: As a requirement of the National Incident Management System, the application of standardized and consistent terminology, including the establishment of plain English communications standards should be implemented across the public safety sector. Although most, if not all, participants were familiar with the meaning of 10-2, the exercise did include multi-disciplines and plain English should have been used. Recommendations: Before and during radio testing convey a reminder to use plain English to all participants. Objective 4: Exercise the ability to communicate to include redundant means of communications. Summary: Communications is the fundamental capability within disciplines and jurisdictions that responders need to perform their job functions. Agencies must be operable, meaning they 13

14 possess sufficient wireless communications capabilities to meet their daily internal and emergency communication requirements as well as on interoperability. Activity 8: Utilize and test alternative solutions to communications interoperability, such as gateways and console patching. Observation: Area for improvement. One site experienced problems in the use of gateways, both from an operator and a technical stand point. Another participating agency had difficulty locating the correct VHF/UHF channels to dial into their stationary VHF/UHF radios, because the channels are not normally accessed by the dispatcher. Analysis: During an emergency or disaster, public safety responders need to have immediate radio connection with each other. Gateways and console patching allow for voice interoperability between otherwise incompatible radio communications systems. Interoperability is achieved by retransmitting voice over interconnected radio units (mobile/portable). Linking incompatible radio frequency bands and systems can be relatively easy and effective, as long as there is staff able to deploy the equipment. Recommendations: Specialized training is required to manage a gateway, especially if multiple or parallel interconnections by several gateways are active in the same geographic area or at an incident scene. Ongoing training of people in the field who use the gateway and handle the interconnect devices is critical. Subsequent exercises should focus on the use of gateways. Objective 5: Develop strategies based on exercise results that will enhance development of a regional communications plan. Summary: Regional collaboration is a key component of successful strategic planning for interoperable communications within the Planning Area. Regional strategic planning will enable the SPA to tie together disparate regional needs, foster collaboration, and establish an overarching SPA-wide strategy that meets the needs of all stakeholders. Activity 9: Radio testing results include information to develop strategies based on exercise results that will enhance development of a regional communications plan. Observation: Strength. The radio testing was successful and the exercise objectives were met. Analysis: Optimal interoperability involves channel/frequency and equipment familiarization and an introduction to regional/state interoperability for all emergency responders prior to their being deployed in the field. Exercises, such as the, provide a non-stress environment to practice and evaluate communications capabilities and the resulting knowledge will ultimately contribute to regional strategic planning. Recommendations: Ensure interoperability communications training is provided to all radio users. Success will be assured by regular, comprehensive, and realistic exercises that address potential problems in the region and involve the participation of all personnel. 14

15 SECTION 4: CONCLUSION The 2012 was designed to create an environment for public safety agencies to test interoperable communications systems, equipment, and procedures to resolve issues and improve communications operability and interoperability. The exercise day began with check-in and set up of participating agencies communications vehicles and interoperability equipment followed by a briefing at each site by the site Point of Contact. After the briefings, radio testing of channels/frequencies in the various public safety bands took place at each site according to the individual site plans. The next set of radio testing was designed to test interoperability between the participating Operational Areas. The radio tests were very successful, leading to recommendations by participating agencies to have the SPA as an annual exercise event. Exercise development identified the Communications Core Capability for evaluation. The capabilities include the capacity to communicate with both the emergency response community and the affected populations and establish interoperable voice and data communications between Federal, state, and local first responders; and the capability to reestablish sufficient communications infrastructure within affected areas to support ongoing life-sustaining activities, provide basic human needs, and transition to recovery. Exercise objectives were developed to align with these capabilities, and to drive the performance of activities and tasks to be evaluated through the exercise. Major strengths included the successful completion of radio testing of channels/frequencies in the public safety bands which increased the awareness and understanding of communications operability and interoperability by the participating agencies staff. The exercise provided opportunities for public safety agencies within the SPA to test interoperability amongst agencies within an Operational Area and between Operational Areas prior to a real-world incident. The exercise also allowed agency personnel to gain knowledge of the types of equipment that neighboring agencies have; and evaluate failures to communicate and resolve interoperability issues across the SPA. There were areas for improvement in the, including administrative coordination of the exercise planning, including the early distribution of exercise plans to participants; the coordination of interoperable communications equipment testing so as not to interfere from one area to another; and to narrow the focus on what technical aspect is being proved. Overall, the exercise was successful. The goals and objectives outlined by the Exercise Planning Team were met, and the exercise provided useful knowledge and experience for all participants. This communications exercise will better prepare the participating agencies to meet the challenges of future more complex exercises, or a real world incident. The Southern Planning Area (SPA) can apply the best practices and lessons learned from the preparedness exercise to improve its interoperable communications capabilities across the SPA region. 15

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