How To Develop A Multi-Year Training & Exercise (T&E) Plan
How to Develop a Multi-YearTraining & Exercise (T&E) PlanA Tool for the Water Sector
How to Develop a Multi-Year Training and Exercise (T&E) PlanA Tool for the Water SectorPlanning is the cornerstone of preparedness.Preparedness is a shared responsibility beginningwith you and extending to the federal government.Training and exercises are critical to thepreparedness process. A multi-year training andexercise (T&E) plan is a tool that can be used tohelp your utility attain preparedness goals. Thisdocument will assist utilities to create multi-yearT&E plans that can lead to increased emergencypreparedness. The material in this document isbased on the Homeland Security Exercise andEvaluation Program (HSEEP) guidance found athttps://hseep.dhs.gov/pages/1001 HSEEP7.aspx.Why is emergency preparedness (e.g.,training and exercises) important for thewater sector?Utilities must prepare to maintain their criticalservices under all-hazard conditions. Preparednessis essential for effective incident and emergencymanagement and recovery. The water sectorshould be engaged in a continuous cycle ofplanning, organizing, training, equipping,exercising, evaluating, and taking correctiveactions to achieve and maintain readiness torespond to, and reduce impacts from, emergencies.Preparedness also leads to increased resiliency,which is a key component of a utility’s ability toprovide critical services under adverse conditions.This document is organized into three mainsections. The first section provides background onthe different types of training and exercises. Thesecond section describes the importance of a T&EPlanningplan and walks the reader through a water andOrganizingwastewater utility multi-year T&E plan template.MakingThe final section of this document consists ofImprovementsattachments. The attachments provide exampleT&E plan documents, exercise resources, anPREPAREDNESSimprovement planning matrix, and a capabilitiesTrainingCYCLEbased planning flow diagram. For example,Attachment 1 provides templates for a multi-yearEvaluatingT&E plan schedule for a small, medium, andlarge utility. Those new to training and exerciseEquippingplanning are strongly encouraged to take FEMA’sExercisingfree online class, An Introduction to Exercises(IS-120.a). The course can be found at http://training.fema.gov/EMIWeb/IS/IS120A.asp. ThePresidential Policy Directive 8 (PPD-8) is aimedmulti-year T&E plan described in this documentat strengthening the security and resilience of theis not intended to cover standard training (e.g.,United States through systematic preparationsampling procedures, workplace safety) conductedfor the threats that pose the greatest risk to theas a part of routine utility operations, although itsecurity of the nation, including acts of terrorism,may be advantageous to combine standard training cyber attacks, pandemics, and catastrophic naturaland emergency preparedness training as part of the disasters. PPD-8 recognizes the role the waterutility multi-year T&E plan schedule.sector plays in providing basic human needs duringa response. Additionally, HSPD-7 named drinkingwater and water treatment systems as criticalinfrastructure and key resources that must bemaintained for the health and stability of the nation.1
procedures (e.g., a seminar to review a new orupdated Emergency Response Plan [ERP]).What are the different types of training?Training is one of the first steps to ensuring yourutility is properly prepared to respond to anemergency. An effective response depends inlarge part on the successful execution of a utility’splans and procedures. Utility personnel shouldbe trained to execute new plans and proceduresbefore implementation. Training may come inmany forms including self-directed (e.g., onlinecourses), or instructor-led (e.g., staff training onnew security procedures). Self-directed trainingis very convenient for people to schedule, buttypically does not allow a student to interact withan instructor or other students. Instructor-ledtrainings resolve this problem, but are not alwaysscheduled such that everyone can attend. Workshop: A workshop resembles a seminar,but is employed to build specific products, suchas a draft plan or policy (e.g., a workshop todevelop a utility’s continuity of operations planor COOP). Tabletop Exercise (TTX): A TTX involves keypersonnel discussing simulated scenarios in aninformal setting. TTXs can be used to assessplans, policies, and procedures (e.g., a TTX toassess a Water and Wastewater Agency ResponseNetwork’s Operational Plan). Game: A game is a simulation of operationsthat often involves two or more teams, usuallyin a competitive environment, using rules, data,and procedures designed to depict an actual orassumed real-life situation (e.g., a scenariodriven set of questions and answers that allowsteams to move pieces on a game board).Training Example:After the Director of Water Treatment at theSouth Bend Water Works (SBWW) in Indianatook on the role of Emergency Planner at hisutility, he began to attend his county’s LocalEmergency Planning Committee (LEPC)meetings. After a couple of unsuccessfulattempts, the SBWW was able to secure a 10,000 education grant from the LEPC tohost two instructor-led water sector IncidentCommand System (ICS) trainings at SBWW.The trainings were open to all first respondersin the county, but the majority of attendeeswere from SBWW.Operations-based exercises validate plans, policies,agreements and procedures, clarify roles andresponsibilities, and identify resource gaps in afield environment. Types of operations-basedexercises include: Drill: A drill is a coordinated, supervisedactivity usually employed to test a single, specificoperation or function within a single entityWhat are the different types ofexercises?There are seven types of exercises definedwithin HSEEP, each of which is eitherdiscussion-based or operations-based.Discussion-based exercises are used todevelop or familiarize participants withplans, policies, agreements, andprocedures. Types of discussionbased exercises include: Seminar: A seminar is aninformal discussion, designedto orient participants to newor updated plans, policies, or2
(e.g., collecting water samples in response to apotential intentional contamination incident).living document that should be updated and refinedannually. The multi-year T&E plan provides aroadmap for your utility to follow in accomplishingthe priorities described in your ERP. Each priorityis linked to a corresponding need identified by yourutility, agency, or jurisdiction, and, if applicable,an Improvement Plan (IP) action. An IP identifieschanges/updates to plans, policies, or proceduresas determined during an exercise. The IP alsoassigns the responsibility for completing theseactions/tasks to a person or group along with animplementation timeline. Attachment 3 providesa format for organizing an IP. Remember, yourtraining and exercises should focus on developingthose capabilities that will help you to achieve yourspecified goals. Functional Exercise (FE): A functional exerciseexamines and/or validates the coordination,command, and control among variousagencies such as water, public health, fire, lawenforcement, and emergency operations centers(e.g., utility personnel, other first responders, andemergency officials responding to an incident inreal time). Full-Scale Exercise (FSE): A full-scale exerciseis a multi-agency, multi-jurisdictional, multidiscipline exercise involving functional and“boots on the ground” response (e.g., utilitypersonnel performing visual inspections offacilities or collecting samples).Included in a multi-year T&E plan is the trainingand exercise schedule, which provides a graphicillustration of the proposed activities scheduledfor a three year period (Attachment 1 providesexamples of a multi-year T&E schedule). It isrepresentative of the natural progression of trainingand exercises that should take place in accordancewith a building-block approach, which entailsfocusing on specific capabilities in a cycle ofescalating complexity and improvement.What are the benefits of a Multi-Year T&EPlan?A multi-year T&E plan will help to ensure that yourutility performs regular training and exercises witha focus on continual improvement. Performingregular training and exercises will ensure thatemployees stay current in their preparednessroles, and will also facilitate new employees’understanding of your utility’s preparedness plansand operations. Training and exercises will alsoallow your utility to determine where changes/updates may need to be incorporated into ERPs,as well as identify the need for additional missioncritical resources.It is important to select the correct exercise toensure you are able to meet your designatedtraining objectives. For example, if your objectiveis to build relationships with other first responders,a tabletop exercise maximizes “face time” with allof the participants in an interactive environment.Please see Attachment 2 for water sector examplesof exercises and for a listing of resources andtools to help you plan and conduct training andexercises.Planning should be conducted with your responsepartners, such as your local fire department(s),police department(s), public health department,local emergency management agency (EMA),state primacy agency, and utilities in neighboringjurisdictions. Planning in a multi-agency, multijurisdictional environment helps to ensure thatyour plans are coordinated with response partners,reducing redundancy and building relationships.Training and exercising with response partners willWhat is a Multi-Year T&E Plan?The multi-year T&E plan is the foundationaldocument guiding a successful training andexercise program. The plan is intended tobe a companion document to an emergencypreparedness plan (e.g., ERP, CommunityComprehensive Emergency Management Plan, orEmergency Operations Plan). The plan is also a3
improve incident response by addressing many ofthe road blocks typically identified in After ActionReports:Water and Wastewater Utility Multi-YearT&E Plan TemplateSection 1. Purpose Poor communications;Poor information flow;The failure to establish incident command early;The failure to utilize unified command;Up-front identification of technical specialists;Safety concerns;Roles and responsibilities;Understanding the capabilities and limitations ofresponse partners; Prioritizing incident objectives; and Ineffective resource management.The first section provides a discussion of thepurpose of your utility’s multi-year T&E plan. Youcan use the information above to help develop anintroduction.Section 2. Points of ContactA primary contact list for personnel involved withtraining and exercises at your utility is provided inthis section. In addition, you should also includeyour local EMA training coordinator, and otheremergency management contacts in your state andlocal jurisdiction. It is important to keep this listand the associated contact information up-to-date.A points of contact list template is provided below,and you should feel free to add other positions tothis list as necessary.What are the components of a Multi-YearT&E Plan?The following Water and Wastewater Utility MultiYear T&E Plan Template provides a summary ofthe components that could be included in yourutility’s plan.Your utility’s Training & Exercise Manager couldbe a superintendent, manager, or operator. Itshould be someone who is familiar with yourutility’s ERP and who also has good organizationalskills.Potential plan components include the following: Section 1. Purpose Section 2. Points of Contact Section 3. Program Priorities/Capabilities-BasedTraining Section 4. Methodology and ImprovementTracking Section 5. Multi-year Training and Exercise PlanSchedulePoints of Contact TemplatePositionUtility SuperintendentTraining and Exercise ManagerEmergency Management DirectorLEPC RepresentativeFire Department LiaisonPolice Department LiaisonPublic Health Department LiaisonHazardous Material Handling TeamWARN Steering Committee MembersContractorsNeighboring UtilityOtherName4Phone/Email
Section 3. Program Priorities/Capabilities-BasedTrainingBe sure to link your priorities back to yourjurisdiction’s priorities. You can then use yourselected priorities to write your multi-year T&Eplan. Identifying and describing your specificpriorities in the multi-year T&E plan will helpyou to focus your program on those capabilitieswhich you would like to develop to support yourpriorities. See the capabilities-based planning flowdiagram in Attachment 4 for an example.Program priorities are identified by first conductinga review of your utility’s vulnerability assessment,existing plans (e.g., ERP), lessons learned fromrecent incidents or previous years’ training andexercises, IPs, and any recent act, regulation, orinitiative, taking into account how your effortswill support or complement your jurisdiction’shomeland security priorities. Conductingthis assessment of your priorities helps you toidentify gaps, excesses, and deficiencies in yourpreparedness capabilities. You can then selectA template for this section of your multi-year T&Eplan is provided below. Remember, your prioritiesshould lead to the development of response andrecovery capabilities at your utility.Capabilities-Based Planning TemplateSection 4. Methodology and ImprovementTrackingcapabilities to validate through training andexercises that support your identified priorities.Target capabilities identified by the Departmentof Homeland Security that apply to all agenciesand organizations, as well as those specific to thewater sector, are located at f. These can be usedas a starting point when identifying capabilities tosupport your program’s priorities.In this section, describe how the training coursesand exercises were chosen and how they willbe tracked with respect to progression andimprovement. Keep in mind that sequence, mix,and range of training courses and exercises ensurethat your utility increases its preparedness throughdifferent and progressively challenging trainingcourses and exercise activities. The methodologychosen should:Capabilities-based preparedness emphasizestraining and exercising specific capabilities (e.g.,maintaining operations during a power outage),rather than more general threats or incidents (e.g.,hurricane, tornado). This is because capabilitiesare applicable to a wide variety of threats andincidents. For example, a utility located in an areaprone to power outages may want to develop thecapability to operate using backup generators. Inthis example, the cause of the power outage (e.g.,hurricane, tornado) is beside the point, as thecapability to operate using backup generators willmitigate the consequences of power outages thatmay occur due to a variety of incidents. Challenge participants with increasinglyadvanced coursework and scenarios; Target specific skills, knowledge, and capabilitiesneeded to execute all facets of the ERP;5
Section 5. Multi-Year Training and ExercisePlan Schedule Incorporate, reinforce, and verify lessons learnedfrom training, exercises, and actual incidents; Identify demonstrated capabilities and areas inneed of improvement; Provide a means of evaluation and improvementplanning for exercises; and Ensure a method to share lessons learnedand best practices from training courses andexercises.The template and examples in Attachment 1 areprovided to help you complete your respectiveschedules. The template can be modified to meetthe requirements of your utility. The guidelinesbelow will assist you to develop the appropriateinformation for the template. In addition,Attachment 5 lists utilities that have successfullyimplemented T&E programs.To ensure that you capture all suggestions andlessons learned from exercises, you may wishto use a form such as an Improvement PlanningMatrix (Attachment 3).Steps to Develop a Multi-Year T&E Plan ScheduleStep 1: Enter the year in which the training and/or exercise will beconducted. For example, if your utility is developing the schedule for2011 through 2013 and you are working on 2011, write “2011 (Year One)”after the colon.Step 2: Enter all participating jurisdictions (e.g., state, regional, local,agency, facility) on the left side of the schedule.Step 3: The schedule is broken into quarters and months. For eachjurisdiction, enter the appropriate quarter and month of the trainingcourse and/or exercise. If an exact date is unknown, enter theinformation into the appropriate year or quarter.Step 4: Write and color-code cells based on the priority of each trainingcourse and exercise type (e.g., TTX, FSE), so that users can easilyunderstand what training course or exercise is being conducted tosatisfy what priority.Step 5: Remember to consider the sequence, mix, and range oftraining and exercises, as well, as the building block approach.6
Attachment 1Multi-Year Training & Exercise Plan ScheduleThis attachment contains a template to develop a multi-year T&E plan schedule. It also includesexamples of multi-year T&E plan schedules for small, medium, and large utilities. You are encouragedto review the example that coincides with your respective utility size and resource levels. Use thecorresponding template to develop your own multi-year T&E plan schedule as part of your overall multiyear T&E plan.Do not forget to check with your usual training and assistance providers (e.g., rural water affiliate or localwater works section). These organizations may also offer training or exercise opportunities that satisfyyour program priorities.7
Purpose:Instructions:Use this form to develop your training and exercise schedule (examples follow).Fill in your utility name and the year for which you are completing this schedule. On the left hand side, list all outside agencies you expect towork with. Fill in, by quarter and month, the exercise or training you plan to conduct or attend to the right of the appropriate agency. Youcan list both in‐house events (e.g., an ERP seminar) as well as those that involve others (e.g., a pandemic tabletop exercise). One event maysatisfy multiple priorities. Remember to start small (e.g., a seminar) and then work your way up to larger events (e.g., a functional exercise).[UTILITY NAME]AGENCY/JURISDICTIONJQtr 1FMAMULTI‐YEAR TRAINING & EXERCISE SCHEDULE: [YEAR ]Qtr 2Qtr 3MJJASOQtr 4ND[UTILITY CIPANT][PARTICIPANT]Priorities Addressed: [insert priority titles in blocks below and color code events in table above that address the priorities below]Priority 1Priority 2Priority 3Priority 4Priority 5Priority 6[Insert Priority Title][Insert Priority Title][Insert Priority Title][Insert Priority Title][Insert Priority Title][Insert Priority Title]
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Attachment 2Exercise Examples and ResourcesExercisesDrill: Some water utilities invested in rapid fieldtesting equipment in response to 9/11. Some ofthis equipment tests for parameters not usuallyanalyzed for by the utilities (e.g., ricin, anthrax),and therefore is not normally used by the utility.To ensure that staff members know how to operatethis equipment, many utilities conduct drills toensure staff familiarity with its use. In addition totraining on equipment, drills can be used to assessnew procedures, practice or maintain skills, orprepare for a more complex exercise.Seminar: Many utilities host seminars tofamiliarize staff with a variety of topics suchas workplace safety, administrative policies,and ERPs. They may not always use the term“seminar” to refer to this type of informaleducational session.Workshop: Prior to the development of the“Resource Typing Manual for Water SectorMutual Aid and Assistance” (AWWA, 2008), threeworkshops were held around the country so thatindividual water and wastewater utilities couldprovide input as to how the Manual should bedeveloped and wh
Training and exercises are critical to the preparedness process. A multi-year training and exercise (T&E) plan is a tool that can be used to help your utility attain preparedness goals. This document will assist utilities to create multi-year T&E plans that can lead to increased emergency preparedness. The material in this document is
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