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Guam 2008 Super Typhoon Tabletop Exercise
June 2-3, 2008
June 2-3, 2008
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FOR OFFICIAL USE ONLY
P R E FA C E
The Guam 2008 Super Typhoon Tabletop Exercise (TTX), Pakyo’s (Pak-zu) Wrath, is sponsored by the Guam Homeland Security and Office of Civil Defense (GHS/OCD) and the Federal Emergency Management Agency (FEMA) Region IX. This situation manual (SitMan) was produced with input, advice, and assistance from the Pakyo’s Wrath Exercise Planning Team, which followed the guidance set forth in the FEMA Homeland Security Exercise and Evaluation Program (HSEEP). The SitMan for the Pakyo’s Wrath TTX provides exercise participants with all the necessary tools for their roles in the exercise. The document is tangible evidence of Guam’s commitment to ensure public safety through collaborative partnerships that will prepare the territory to respond to any emergency. Pakyo’s Wrath is an unclassified exercise. The control of information is based more on public sensitivity regarding the nature of the exercise than on the actual exercise content. Some exercise material is intended for the exclusive use of exercise planners, facilitators, and evaluators, but players may view other materials deemed necessary to their performance. The SitMan may be viewed by all exercise participants. All exercise participants should use appropriate guidelines to ensure the proper control of information within their areas of expertise and to protect this material in accordance with current jurisdictional directives. Public release of exercise materials to third parties is at the discretion of the Pakyo’s Wrath Exercise Planning Team.
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4. U. 2.FOR OFFICIAL USE ONLY H A NDL ING I NS T R UC T IONS firstname.lastname@example.org SitMan: Handling Instructions iii Pakyo’s Wrath . inadvertent access. 3. will be stored in a locked container or area offering sufficient protection against theft. handled.org Name: Fred Wehrenberg National Preparedness Division. and unauthorized disclosure. without prior approval from GHS/OCD or FEMA Region IX. Situation Manual (SitMan). This document should be safeguarded.S. Department of Homeland Security FEMA Region IX 1111 Broadway. compromise. The title of this document is the Guam 2008 Super Typhoon Tabletop Exercise (TTX). Reproduction of this document. Suite 1200 Oakland. is prohibited. transmitted. At a minimum. in whole or in part. CA 94607 510-627-7020 (office) 510-316-7636 (cell) fred. Guam 96910 671-646-9600 or 671-646-9600 or 671-646-9601 (office) 671-483-0402 (cell) tbejado@guamhs. please consult the following points of contact (POCs): Name: Tanya Bejado Training and Exercise Coordinator Guam Homeland Security and Office of Civil Defense 221-B Chalan Palasyo Agana Heights. Pakyo’s (Pak-zu) Wrath. For more information. The information in this SitMan is For Official Use Only (FOUO) and should be handled as sensitive information not to be disclosed. the attached materials will be disseminated only on a need-to-know basis and when unattended. and stored in accordance with appropriate security directives.
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............................................................................................................................................................................................................................ 5-21 Hazard Specific Annex A ..................................................................... 3-4 Participant Evaluation Form ....................... 5-13 Guam Emergency Support Function Matrix ................................................................................................................................................................................Tab A: Typhoon Checklist ............................................................................................................................. 1-1 Exercise Objectives ................................................................................................... 3-7 SECTION 4: TABLETOP EXERCISE BRIEFINGS ......................................................................................................................................................................................................... 1-1 Target Capabilities ............................ 5-15 Guam Emergency Response Plan (GERP)--Hazard Specific Annex A: Tropical Cyclones ............................................... 3-1 Notes – Personal Response Roles ......FOR OFFICIAL USE ONLY C ONT E NT S PREFACE ................................................... 5-9 Guam Unified Coordination Group ...................................................................... 1-1 Purpose and Scope .......................................... 5-30 Hazard Specific Annex A .......................................................................................... 5-40 Fact Sheet: National Incident Management System (NIMS)....................................... 5-37 National Response Framework--Fact Sheet ............................III SECTION 1: EXERCISE OVERVIEW ................................................................................. 2-1 SECTION 3: RECORDS AND FORMS ........................................................................................................................................................................... 4-1 SECTION 5: BACKGROUND INFORMATION ............................................................................... 3-2 Action Item Workplan ................. 1-4 Exercise Structure..................................................................................................................................................................................................... 5-7 Senior Leaders’ Intent ................ 5-35 Tropical Cyclone Classifications ................. 1-8 SECTION 2: SCENARIO ................................................................................................................................................................ 3-5 Issue Card......................................... 1-5 Evaluation ......................................................................................................................................................... 1-7 Assumptions and Artificialities ............................................................................. I HANDLING INSTRUCTIONS ...... 5-39 National Response Framework: Frequently Asked Questions..............................................................Tab B: Agency Preparation ..................................... 5-49 SitMan: Contents v Pakyo’s Wrath ...................................................... 5-3 Guam Catastrophic All-Hazards Concept of Operatrions ..................................................................................... 5-11 Incident Action Planning ..................... 5-7 Guam All-Hazard Response Structure ................................................................................................................................................................................................................................................................................................................. 5-33 Department of Defense Conditions of Readiness ..... 5-1 Acronyms .................................. 1-2 Participants ...............
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and international government organizations for a candid. The desired outcome is to advance the degree of mutual understanding of the impacts of such a scenario as a means of developing plans and solutions for future response efforts. regional. Capabilities-based planning focuses on planning under uncertainty. this exercise will serve to strengthen our Federal. The TTX requires each organization to conceptualize operations under which the priorities. international. Territorial. capabilities. and relationships that are essential in the fast-paced operating environment of major disasters. capabilities-based planning takes an all-hazards approach that builds capabilities that can be applied to a wide SitMan: Overview 1-1 Pakyo’s Wrath . local. In addition. Pakyo’s (Pak-zu) Wrath. Bringing together Federal. and needs of all partners and customers in disaster operations are synchronized over the operational continuum. solution-focused discussion regarding the compatibility of the new Guam Catastrophic All-Hazards CONOP with other Territory. trust. and private-sector agencies periodically to review current plans and response and recovery efforts is an effective way to build understanding. and local response plans. is designed to familiarize appropriate organizations with the response community’s plans and capabilities for responding to an emergency. Territorial. military. since the next danger or disaster can never be forecast with complete accuracy. international. regional. This TTX provides participants an opportunity to evaluate current response capabilities for a super typhoon in Guam. and national response plans as well as local resources management issues and federal request processes for a super typhoon incident. Territory. Target Capabilities The National Planning Scenarios (NPS) and the establishment of the National Preparedness Priorities have steered the focus of homeland security toward a capabilities-based planning approach. and help them understand their roles and responsibilities in planning and execution. this exercise will serve as the Federal Emergency Management Agency (FEMA) Region IX annual hurricane preparedness exercise. Therefore. This notebook will provide you with background information related to the Pakyo’s Wrath TTX. The exercise will focus on assessing the new Guam Catastrophic All-Hazards Concept of Operations Plan (CONOP) recently developed in coordination with the Government of Guam (GovGuam) and FEMA Region IX to synchronize national.FOR OFFICIAL USE ONLY S E C T ION 1: E XE R C IS E O V E R V IE W The Guam 2008 Super Typhoon Tabletop Exercise (TTX). and private-sector relationships and processes for responding to and recovering from major incidents affecting Guam. local. Further. Purpose and Scope Pakyo’s Wrath will bring together Federal. local. The scenario is intended to stress the response system in order to focus discussions on areas that may not have been explored sufficiently. Territorial.
and the National Incident Management System (NIMS) through demonstration of the following: SitMan: Overview 1-2 Pakyo’s Wrath . Guam CONOP. Guam’s Emergency Response Plan (GERP). identifying opportunities or problems. This approach identifies gaps in current capabilities and focuses efforts on identifying and developing priority capabilities and tasks for the jurisdiction. States and urban areas use capabilities-based planning to identify a baseline assessment of their homeland security efforts by comparing their current capabilities against the Target Capabilities List (TCL) and the critical tasks of the Universal Task List (UTL). Common − Planning − Communications − Community Preparedness and Participation Prevention − Critical Infrastructure Protection Response − Critical Resource Logistics and Distribution − Emergency Operations Center (EOC) Management − Emergency Public Safety and Security Response − Citizen Evacuation and Shelter-in-Place − Emergency Public Information and Warning − Food and Agriculture Safety and Defense − Volunteer and Donations Management − Medical Surge Recovery − Structural Damage Assessment − Restoration of Lifelines − Economic and Community Recovery Exercise Objectives Exercise design objectives are focused on improving understanding of a response concept. of which this exercise is a component. These priority capabilities are articulated in the jurisdiction’s homeland security strategy and Multi-Year Training and Exercise Plan. The exercise will focus on the following design objectives selected by the Exercise Planning Team: 1. as the purpose of this exercise is to measure and validate performance of these capabilities and their associated critical tasks. These capabilities provide the foundation for development of the exercise objectives and scenario. and/or achieving a change in attitude.FOR OFFICIAL USE ONLY variety of incidents. including the National Response Framework (NRF). The capabilities listed below have been selected by the Pakyo’s Wrath Exercise Planning Team from the priority capabilities identified in Guam’s Multi-Year Training and Exercise Plan. Exercise the compatibility and coordination mechanisms of appropriate plans.
and private sector) understand the Mission Assignment (MA) process. and verify the specific roles and responsibilities of the Federal. local and private sector. Ensuring Federal military and National Guard response activities are coordinated and synchronized. Recognition of the distinction between Immediate Response Authority. and Robert T. Ensuring an understanding of Essential Elements of Information (EEI) necessary to establish a common operating picture (COP) among all stakeholders. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) requests for assistance. d. c. and e.2. SitMan: Overview 1-3 Pakyo’s Wrath . Territory. and private-sector entities and the request processes. Ensuring all stakeholders (Federal. mutual aid agreements. Exercise the processes for resource management during response and initial recovery phases of a catastrophic incident. O. 5. 2. The processes and procedures involved in coordinating and linking Department of Defense (DoD) and the Territory’s Conditions of Readiness (COR). Alternative communications systems. local. b. Territory. and verify its function and composition. Recognition of the distinction between Title 32 and Title 10 support capabilities to Territory. b. Establish Unified Coordination Group (UCG) using Unified Command (UC) concepts and principles. and d. and private sector messaging via the Joint Information Center (JIC). local.1. and b. Integrated Federal. Territory. local.FOR OFFICIAL USE ONLY a. Local Resource Coordination: Determine strengths and weaknesses in the regional coordination and integration of response resources. Validate the Guam Catastrophic All-Hazards CONOP. Guam’s interoperable communications capabilities. The Emergency Alert System (EAS). Identify response resources available to Guam in accordance with appropriate response plans and procedures and identify gaps that exist in the process. Exercise the effectiveness of the Guam’s notification and communications systems including: a. c. b. and the private sector for response and initial recovery operations by: a. and c. Ensure all stakeholders understand the Incident Action Planning process within NIMS. Validate the Emergency Support Function (ESF) structure in Guam and its functionality within EOC/Joint Field Office (JFO). Identify critical issues and potential solutions. Awareness of Federal and State Capabilities: Broaden the understanding of regional authorities and responders to the capabilities available from State and Federal agencies in responding to terrorist attacks and natural disasters. 3. 4. Overarching Exercise Objectives: O. Broaden an understanding of Defense Support of Civil Authorities and the Private Sector through: a. non-governmental agencies. Examine the process of information coordination between the GovGuam. other Federal agencies.
current plans and procedures. They also provide additional information or resolve questions as required.S.. potential time delays in receipt of external support. they are not participants in the moderated discussion period. Mutual Aid Agreements: Review inter-jurisdictional mutual support compacts or agreements (between adjacent communities. Key planning committee members may also assist with facilitation as Subject Matter Experts (SMEs) during the TTX. employment.S. Department of Transportation (DOT) National Weather Services/National Oceanic & Atmospheric Administration (NWS/NOAA) U. and nationwide). Attorneys Offices U. Secret Service (USSS) U.S. O.S. Environmental Protection Agency (EPA) U. Propose potential long-term solutions and short-term workarounds. Observers support the group in developing responses to the situation during the discussion.4. Participants Players respond to the situation presented based on expert knowledge of response procedures. O.S.S Army Corps of Engineers (USACE) U. and insights derived from training. receipt. Identify interoperability shortcomings that will impede the rapid assimilation of external resources.S. evaluate and comment on designated functional areas of the exercise and suggest recommendations. Evaluators are SMEs who observe. Small Business Association (SBA) Department of Homeland Security Office of Infrastructure Protection (DHS OIP) Center for Disease Control and Prevention (CDC) National Communications System (NCS) Territory Mayors Council of Guam Guam Police Department (GPD) Department of Public Health and Social Services (DPHSS) SitMan: Overview 1-4 Pakyo’s Wrath .5. Deployment of External Resources: Develop an understanding of deployment considerations for external resources. Department of Defense (DoD) U. however. Facilitators provide situation updates and moderate discussions.FOR OFFICIAL USE ONLY O. Pakyo’s Wrath: Entity Federal Emergency Management Agency (FEMA) U.S. and the inherent effects at the local level. inter-state. and integration of external response assets by local Incident Command System (ICS) protocols. They have a passive role in the exercise and do not interfere with exercise flow The following table lists the agencies participating the TTX.3.S. Implementation of External Assets: Examine factors involved in the request. Coast Guard (USCG) U. Department of Agriculture Guam Homeland Security and Office of Civil Defense (GHS/OCD) Office of the Governor of Guam Guam Department of Corrections Federal Transportation Security Administration (TSA) U.
key decisions. policies. offering observations to the forum. Players will be acting in their real-life roles when considering the scenario. Facilitate understanding of concepts. and procedures. This approach will allow discussion to focus on situations within a moving timeline and for participants to contribute to the discussion from the perspective of their roles in response. and elected and appointed officials. the facilitator will ensure that the scenario moves along at an appropriate pace and that all participants have an opportunity to contribute. decision-makers. This exercise is an effective tool to improve emergency preparedness. recently developed in coordination with GovGuam and FEMA to synchronize Federal. and Involve discussion with key staff. and making strategic and tactical decisions. policy-oriented issues.FOR OFFICIAL USE ONLY Entity Territory Cont’d Guam National Guard Guam Memorial Hospital Authority (GMHA) Guam Fire Department (GFD) Guam Customs and Quarantine Agency (CQA) Guam Waterworks Authority (GWA) Guam Department of Agriculture (DOAG) Guam Public School System (GPSS) Port Authority of Guam (PAG) Guam Power Authority (GPA) Guam International Airport Authority (GIAA) General Service Agency (GSA) Recovery Coordination Office Department of Public Works (DPW) Guam Environmental Protection Agency (GEPA) Bureau of Budget and Management Research (BBMR) Department of Administration Regional Commonwealth of Northern Marianas Islands (CNMI) CNMI Emergency Management Office Office of Homeland Security Private Sector Guam Hotel and Restaurant Association (GHRA) GTA TeleGuam Non-Governmental American Red Cross (ARC) Salvation Army Exercise Structure The exercise methodology incorporates a scenario-based format with facilitated issue identification and discussion. Familiarize participants with current or expected jurisdictional capabilities. agency authorities. listening to special topic briefings. and achieve greater participant understanding of roles and responsibilities. mutual-aid agreements. and will: Focus on existing plans. validation of plans and procedures. Serve as a forum for developing new plans and procedures as opposed to operations-based exercises that tend to focus more on tactical response issues. Territory. As the Lead Controller of the exercise. and interagency coordination to successfully meet both SitMan: Overview 1-5 Pakyo’s Wrath . Enhance general awareness. Provide a forum to assess the new Guam Catastrophic All-Hazards CONOP. participants will be asked to address topics such as operational plans. and/or assessment of the types of systems needed to guide response and recovery from a defined event. as well as strategic. and local response plans. identify strengths and shortfalls. During the course of the TTX.
Game Periods and Special Topic Briefings The TTX is composed of four game periods representing different preparedness. facilitated discussions. The discussions will explore policies. The plenary sessions aim to achieve several of the overall objectives of the TTX and validate each of the target capabilities by initiating the discussion and raising awareness of the requirements and shortfalls based on the proposed scenarios. The scenarios will integrate existing issues as identified through discussions with the Exercise Planning Team and collaborative exercise planning sessions. as well as preparedness. coordination between Federal. and key relevant issues. and/or recovery activities occurring for that game period). regional. actions. decisions. Territorial. response. The facilitator will lead participants through the TTX with the assistance of the TTX support team.and long-term needs resulting from a super typhoon. impacts. Keep your comments focused and consider the time constraints. and private-sector entities. response and short-term recovery actions for the scenario. participants will be expected to discuss preparedness. or recovery phases of a super typhoon incident. prevention. and damage information. problem-solving suggestions are strongly encouraged as these will enhance the exercise experience. Topics will include. Guam Homeland Security EOC Vision. and resource requesting processes. but are not limited to. Keep the exercise’s objectives in mind throughout the exercise. resource availability to the island of Guam. and Special Topic Briefings. which will require participants to respect the observations.FOR OFFICIAL USE ONLY the short. FEMA Pre-Missions Assignments (PSMAs) and Mission Assignments (MAs) Process. Each game period consists of a scenario briefing (which will update participants on threats. These briefings will be presented by SMEs. Treat the scenario incidents as real events. Special Topic Briefings include: An Overview of the NRF Changes. Exercise Ground Rules The following exercise ground rules have been developed to ensure that the objectives are met in a reasonable amount of time and that the TTX runs smoothly. Caucus sessions will be periodically offered to provide participants an opportunity to interact one-on-one with each other while working to achieve specific outcomes focused on the progression of the scenario discussion. sharing thoughts. The Special Topic Briefings will be presented throughout the TTX to provide information on special interest topics. Asking questions. international. new and existing emergency response and operations plans. During the course of each game period. local. opinions and perspectives of others. SitMan: Overview 1-6 Pakyo’s Wrath . Issues and procedures flowing from each move presented will be thoroughly discussed. such as operating procedures or new initiatives. Play your appropriate role. Participate openly and focus discussions on appropriate topics. response. and offering forward-looking. potential caucus sessions.
The facilitator will not dominate the conversation. Once all SitMan: Overview 1-7 Pakyo’s Wrath . and interagency/inter-jurisdictional relationships that support the performance of critical tasks required to prevent or to respond to a super typhoon. DisasterLAN. Possess subject-matter expertise relevant to the issues presented in the exercise. control group dynamics and strong personalities. and Be aware of local plans and procedures. policies. An action-planning Hot Wash session will follow to encourage participants to make observations about the issues. The evaluation portion is aligned with the established program metrics. discussion. Throughout the exercise. keep discussions on track and within established time limits. They have been designed to support an assessment of exercise objectives. The evaluation methodology for TTXs focuses on the adequacy of and familiarity with the jurisdiction’s plans. and decisions made. An objective facilitator will lead participants through the activities surrounding the scenarios. Evaluations provide an objective assessment of the participants’ discussions. In general. The facilitated TTX uses a scenariobased approach to create the decision-making environment for participants to act in their roles. The goal of evaluation is to validate strengths and identify opportunities for improvement among participating organizations. Exercise Control Exercises will be controlled and guided by the facilitator. After the exercise. and Reestablishing Commerce and Port Reconstitution. procedures. Lessons learned during the exercise will allow participants to update their current response plans and strategies as needed. the facilitator will press organizations to discuss their biggest challenges and make commitments on how those challenges can be addressed. The facilitator is responsible for keeping discussions on track with exercise objectives and ensuring that all issues are explored (time permitting). the facilitator will: Keep side conversations to a minimum. After each presentation. resources. the facilitator will solicit discussion on key activities and decisions that individuals or organizations would perform in the specific scenario time period.FOR OFFICIAL USE ONLY Sections of the Guam Catastrophic All-Hazards CONOP. issues. Issues Hot Wash The challenges. This is a no-fault exercise that focuses on the identification and analysis of issues of common concern. and decisions discussed during the TTX will be tracked by an Evaluation Team. and speak competently and confidently about the subject at hand. the Evaluation Team will report the key and recurring issues that were captured during the exercise. Exercise Evaluation Exercise evaluation is an essential element of a successful exercise program. Joint Knowledge Management.
SitMan: Overview 1-8 Pakyo’s Wrath . There is no “hidden agenda. issue discussions. a summary of activities. All players receive information at the same time. Assumptions and Artificialities In any exercise. All past assumptions used to plan for Category 3 and 4 typhoons cannot be used in planning and preparing for a Category 5 catastrophic incident.FOR OFFICIAL USE ONLY issues are presented. and events occur as they are presented. a number of assumptions and artificialities may be necessary to complete play in the time allotted. The AAR will be used to identify key issues that need to be included for exercise play in future exercises. the following apply: The scenario is plausible. and decisions of the exercise will be included in an after-action report (AAR). and Time jumps may be employed to discuss different aspects of the response cycle. During this exercise. It will also catalog remaining issues that were not addressed in this session but could be used as the springboard for follow-on exercises and sessions.” nor any trick questions. At the conclusion of the TTX. they will be categorized and ranked in a facilitated consensus-building process.
SitMan: Scenario 2-1 Pakyo’s Wrath .FOR OFFICIAL USE ONLY S E C T ION 2: S C E NA R IO Please insert your scenario handout in this section.
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Participant input will help to improve future exercises. but you may raise issues during the Hot Wash session and may refer to your notes. but would like to remain anonymous. SitMan: Records and Forms 3-1 Pakyo’s Wrath .FOR OFFICIAL USE ONLY S E C T ION 3: R E C OR DS A ND F OR MS The following records and forms are provided for your use during the exercise: Notes . Action Item Workplan—The TTX Hot Wash session will discuss issues that were identified during the exercise. Participant Evaluation Form—Participants will be asked to provide their evaluations of the TTX in the feedback form. or issue related to the topics of discussion. or the schedule did not provide enough time for further discussion. Issue Cards—A participant may use issue cards to raise a question. This form will help you track issues for further discussion during the exercise or Hot Wash. concern. but will be a document for you to take back to your job. does not feel comfortable asking a question aloud. You will not be asked to turn in this form. This form will not be submitted to the exercise staff.Personal Response Roles—During the exercise. which should be submitted prior to leaving the event. you may identify issues that impede your job or opportunities that may improve your agency’s response to disasters or other emergency incidents.
_____________________________________________________________________ _____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ 2. Other: SitMan: Records and Forms 3-2 Pakyo’s Wrath . What additional concepts or procedures do I need clarified? 1. Other: What changes or additions to existing plans or procedures are necessary to support or clarify my personal role or the role of my agency? 1. _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ 2.FOR OFFICIAL USE ONLY N OT E S – P E R S ONA L R E S P ONS E R OL E S Guam 2008 Super Typhoon TTX Pakyo’s Wrath June 2-3. 2008 Throughout the discussion. 3. use this form to identify issues that require resolution so you may effectively perform your personal response roles. 3.
or support staff are needed to support my personal responsibilities? 1. _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ 2.FOR OFFICIAL USE ONLY What additional briefings or formal training does my agency need? 1. ____________________________________________________________________ ____________________________________________________________________ _____________________________________________________________________ 2. _____________________________________________________________________ ______________________________________________________________________ _____________________________________________________________________ Other: ____________________________________________________________________ ____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ SitMan: Records and Forms 3-3 Pakyo’s Wrath . _____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ Other: ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ ____________________________________________________________________ What equipment. ____________________________________________________________________ _____________________________________________________________________ _____________________________________________________________________ 3. _____________________________________________________________________ ______________________________________________________________________ ______________________________________________________________________ 3. space. information resources.
7. 4. SitMan: Records and Forms 3-4 Pakyo’s Wrath . 8. 9. 6. RESPONSIBILITY TIME FRAME 2. 2008 ACTION 1. 3.FOR OFFICIAL USE ONLY A C T ION I T E M W OR K P L A N Guam 2008 Super Typhoon TTX Pakyo’s Wrath June 2-3. 5.
List the equipment. For each action step. Describe the action steps that should be taken in your area of responsibility. revised. Who should be assigned responsibility for each action item? ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ 4. Indicate the priority level for each. or plans/procedures that should be reviewed. list the top 3 issues and/or areas that need improvement. training. or developed. ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ SitMan: Records and Forms 3-5 Pakyo’s Wrath . or low priority. 2008 Participant Name: ___________________________ Agency: ________________________ Title: ___________________________ Role: __Player __Observer __Evaluator Part I – Recommendations and Action Steps 1. Based on the exercise objectives and the capabilities being validated. ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ 2. indicate if it is a high. ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ 3. Identify the action steps that should be taken to address the issues identified above.FOR OFFICIAL USE ONLY P A R T IC IP A NT E V A L UA T ION F OR M The Guam 2008 Super Typhoon TTX Pakyo’s Wrath June 2-3. medium.
The exercise scenario was plausible and realistic. on a scale of 1 to 5. What is your assessment of the exercise design and conduct? Please rate. What changes would you make to improve this exercise? Please provide any recommendations on how this exercise or future exercises could be improved or enhanced. your overall assessment of the exercise relative to the statements provided below. The exercise was well structured and organized. with 1 indicating strong disagreement with the statement and 5 indicating strong agreement. 1 2 3 4 5 2. Rating of Satisfaction with Exercise Strongly Strongly Disagree Agree 1 1 1 2 2 2 3 3 3 4 4 4 5 5 5 Assessment Factor a. c. b. Participation in the exercise was appropriate for someone in my position. d. ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ ________________________________________________________________________________ Thank you for your feedback. The documentation used during the exercise was a valuable tool throughout the exercise.FOR OFFICIAL USE ONLY Part II – Exercise Design and Conduct 1. 1 2 3 4 5 e. Please make sure to provide your completed form to someone on the exercise support staff before you leave the exercise. SitMan: Records and Forms 3-6 Pakyo’s Wrath . The participants included the right people in terms of level and mix of disciplines.
FOR OFFICIAL USE ONLY I S S UE C A R D Issue Card This Issue Card is provided for you to present any issue you would like raised during the tabletop exercise. Please fill out the card and hand it to one of the exercise support staff. Topic: Issue: Recommendation: Issue Card This Issue Card is provided for you to present any issue you would like raised during the tabletop exercise. Please fill out the card and hand it to one of the exercise support staff. Topic: Issue: Recommendation: SitMan: Records and Forms 3-7 Pakyo’s Wrath .
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Guam Homeland Security Emergency Operations Center Vision. SitMan: TTX Briefings 4-1 Pakyo’s Wrath .FOR OFFICIAL USE ONLY S E C T ION 4: T A B L E TOP E XE R C IS E B R IE F ING S The following briefings are being presented during the Guam 2008 Super Typhoon TTX. FEMA Pre-Scripted Mission Assignments and Mission Assignment Process. Copies of these presentations are provided in this section. Sections of the Guam Catastrophic All-Hazards Concept of Operations. Overview of the National Response Framework Changes. Joint Knowledge Management. DisasterLAN. Pakyo’s Wrath. and Reestablishing Commerce and Port Reconstitution.
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FOR OFFICIAL USE ONLY B A C K G R OUND I NF OR MAT ION Acronyms Guam Catastrophic All-Hazards Concept of Operations (CONOP) S E C T ION 5: − Senior Leaders’ Intent − Guam All-Hazard Response Structure − Guam Unified Coordination Group − Incident Action Planning − Guam Emergency Support Function Matrix Guam Emergency Response Plan (GERP) – Hazard Specific Annex A: Tropical Cyclones − Hazard Specific Annex A – Tab A: Typhoon Checklist − Hazard Specific Annex A – Tab B: Agency Preparation Guam Homeland Security/Office of Civil Defense Conditions of Readiness Department of Defense Conditions of Readiness Tropical Cyclone Classifications National Response Framework (NRF)--Fact Sheet National Response Framework: Frequently Asked Questions Fact Sheet: National Incident Management System (NIMS) SitMan: Background Investigation 5-1 Pakyo’s Wrath .
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S.S Department of State U. Department of Transportation Department of Recreation Guam Department of Public Works Emergency Alert System Essential Elements of Information Electronic Fund Transfer Emergency Medical Department SitMan: Background Information 5-3 Pakyo’s Wrath . Department of Defense U. Department of Health and Human Services Department of Homeland Security Office of Infrastructure Disaster Information Systems Clearinghouse Department of Integrated Services for Individuals with Disabilities Department of Land Management Guam Department of Mental Health and Substance Abuse Department of Public Health and Social Services Department of Administration Guam Department of Agriculture U.S.S.S.S.G. ARC ARF BBMR CoA CDC CI/KR CONPLANS CONOP COP COR CQA DCO DHHS DHS OIP Protection DISC DISID DLM DMHSA DPHHS DOA DOAG DoD DOE DOI DOJ DOL DOS DOT DPR DPW EAS EEI EFT EMD After-Action Report Anderson Air Force Base Office of the Attorney General American Red Cross Action Request Form Bureau of Budget and Management Research Course of Action Centers for Disease Control and Prevention Critical Infrastructure/Key Resources Contingency Plans Concept of Operations Common Operating Picture Conditions of Readiness Guam Customs and Quarantine Agency Defense Coordinating Officer U. Department of the Interior U. Department of Justice Department of Labor U.FOR OFFICIAL USE ONLY A C R ONY MS AAR AAFB A. Department of Energy U.S.
S. Environmental Protection Agency Emergency Response Team Emergency Support Function Finance/Administration Federal Coordinating Officer Federal Emergency Management Agency Full-Scale Exercise Federated States of Micronesia For Official Use Only Guam Community College Guam Environmental Protection Agency Guam Emergency Response Plan Guam Fire Department Guam Hotel and Restaurant Association Guam Homeland Security and Office of Civil Defense Guam Housing and Urban Renewal Agency Guam International Airport Authority Geographic Information Systems Guam Memorial Hospital Authority Government of Guam Guam Power Authority Guam Police Department Global Positioning System Guam Public School System General Services Agency GTA TeleGuam Guam National Guard Guam Visitor’s Bureau Guam Waterworks Authority Homeland Security Advisor Homeland Security Exercise and Evaluation Program Individual Assistance Incident Commander Incident Command System Incident Management Assistance Team Initial Operating Facility Incident of National Significance Initial Response Resources Joint Field Office SitMan: Background Information 5-4 Pakyo’s Wrath .FOR OFFICIAL USE ONLY EMAC EOC EPA ERT ESF F/A FCO FEMA FSE FSM FOUO GCC GEPA GERP GFD GHRA GHS/OCD GHURA GIAA GIS GMHA GovGuam GPA GPD GPS GPSS GSA GTA GUNG GVB GWA HSA HSEEP IA IC ICS IMAT IOF IONS IRR JFO Emergency Management Assistance Compact Emergency Operations Center U.
FOR OFFICIAL USE ONLY JIC JOC JTF kts LC LOG LPG MA MARAD MCOG MIRP MOA MOU MPH MTA MTSRU NCS NGO NIMS nm NOAA NPS NRCC NRF NWS OCME OFA OPS OSO PA PAG PFO PLN POC PSMA RAC RMI RRCC Joint Information Center Joint Operations Center Joint Task Force Knots Logistics Center Logistics Liquefied Petroleum Gas Mission Assignment Maritime Administration Mayor’s Council of Guam Maritime Infrastructure Recovery Plan Memorandum of Agreement Memorandum of Understanding Miles Per Hour Guam Mass Transit Authority Maritime Transportation System Recovery Unit National Communications System Non-Governmental Organization National Incident Management System Nautical Mile National Oceanic and Atmospheric Administration National Planning Scenarios National Response Coordination Center National Response Framework National Weather Service Office of the Chief Medical Examiner Other Federal Agency Operations Other Senior Official Public Assistance Port Authority of Guam Principal Federal Official Planning Point of Contact Pre-Scripted Mission Assignment Response Activity Coordinator Republic of Marshall Islands Regional Response Coordination Center SitMan: Background Information 5-5 Pakyo’s Wrath .
Navy University of Guam Urban Search & Rescue U.S.S. Small Business Administration Senior Federal Law Enforcement Official Situation Manual Subject-Matter Expert The Adjunct General Tuberculosis Target Capabilities List Top Officials Exercise Transportation Security Administration Tabletop Exercise Unified Command Unified Coordination Group U. Coast Guard U. Army Corps of Engineers U.S. Coast Guard Universal Task List Volunteer Agencies SitMan: Background Information 5-6 Pakyo’s Wrath .S.S.FOR OFFICIAL USE ONLY SCO SCOG SBA SFLEO SitMan SME TAG TB TCL TOPOFF TSA TTX UC UCG USACE USCG USFS USN UOG US&R USSS UTL VOAG State Coordinating Officer Supreme Court of Guam U. Forest Service U.S.
Ensure responder health and safety. Provide for basic human needs and mass care to include: − Food − Water − Emergency medical care and services − Shelter − Power Generation Stabilize critical infrastructure and key resources essential to the operation of the economy and the government Create conditions in the affected area that allow re-entry. Consistency with the principles of NIMS and ICS: The UCG and IMAT direct the efforts of the joint Territory/Federal organization.FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan. the Administrator of the Guam Office of Civil Defense. and the Administrator of Federal Emergency Management Agency (FEMA) Region IX. and future hazard mitigation. In accordance with these principles. Protect public health and safety. to immediately establish a Unified Coordination Group (UCG) in accordance with the National Response Framework (NRF) and in keeping with the principles of the National Incident Management System (NIMS) and the Incident Command System (ICS) including: Unity of effort: Using Unified Command principles ensure that Territory and Federal objectives. long-term recovery. Minimize damage to and protect property. priorities. and utilization of resources at the field level. p. SitMan: Background Information 5-7 Pakyo’s Wrath . These operations are organized according to NIMS and ICS principles. as represented by the Governor’s Homeland Security Advisor. initially at the EOC and subsequently at the JFO. the UCG will coordinate response efforts towards the following goals: Save and sustain life. Maintenance of existing authorities and responsibilities: The organizations participating in or supporting the UCG and the Incident Management Assistance Team (IMAT) do not give up their respective authorities and responsibilities under Territory and Federal laws and regulations. and operations are aligned and that direction from the decision making of senior officials results in effective allocation. The structure is scalable and flexible so that it can be adapted to the specific circumstances of the incident in question. integration. repopulation.11-12 G UA M C A T A S T R OP HIC A L L -H A ZA R DS C ONC E P T O P E R A T IONS Senior Leaders’ Intent OF It is the intent of the senior leadership of the Government of Guam (GovGuam) and the Federal agencies responsible for response efforts to a catastrophic incident in Guam.
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p.23 SitMan: Background Information 5-9 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan.
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the separate functions of the EOC and RRCC are incorporated into the Unified Coordination Group structure. Serve as the structure to integrate the efforts of senior Territory and Federal leaders engaged in response and recovery operation by developing and prioritizing objectives for the joint response to the incident. Implement policy decisions made by appropriate Territory and Federal policymaking entities. Once Guam HS/OCD and FEMA agree to the formation of the Unified Coordination Group. then migrates to the Joint Field Office (JFO) when that facility can provide required functionality to support response and recovery operations.FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan. To ensure unity of effort.25 Guam Unified Coordination Group This joint Territory/Federal response will be led by the Unified Coordination Group (UCG). Approve tasking of Territory and Federal agencies and coordination with non-governmental and private-sector organizations. and Note: The UCG will not assume responsibility for tactical and field-level Incident Command functions. The UCG will be formed at the Guam Emergency Operations Center (EOC). the JFO ultimately becomes the focal point for Territory operations. including those functions that would otherwise be performed at the EOC. The core of the Unified Coordination Group may include: Principal Federal Official (PFO) Governors Homeland Security Advisor (HSA) Federal Coordinating Officer (FCO) State Coordinating Officer (SCO) Defense Coordinating Officer (DCO) GANG Adjutant General (TAG) Senior Federal Law Enforcement Official (SFLEO) Representatives of other agencies/organizations as required SitMan: Background Information 5-11 Pakyo’s Wrath . p. Direct combined Territory and Federal operations based on priorities set by the Governor of Guam and the President of the United States through incident action planning. The UCG’s roles and responsibilities include the following: Provide leadership for all Territory and Federal agencies providing response to the incident and ensure unity of effort.
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The Incident Action Planning process used to prepare the IAP is a key component for ensuring effective integration of Territory and Federal resources and unity of effort. Resources are not double-committed or duplicated. The Incident Action Plan (IAP) is the central tool for planning during the response to and initial recovery from an incident. The joint IAP identifies the incident objectives established for the integrated Territory/Federal operation and addresses specific tactical actions and supporting information for each operational period. generally 24 hours. Cross-functional collaboration is critical to the process. a common set of incident objectives is developed and resources assigned to effectively meet those objectives.FOR OFFICIAL USE ONLY GUAM ALL-HAZARDS CATASTROPHIC CONOP BASE PLAN. Incident action planning ensures that: Objectives across functional areas do not conflict. P. Through this process.31-32 Incident Action Planning The Incident Command System (ICS) emphasizes orderly and systemic planning. SitMan: Background Information 5-13 Pakyo’s Wrath . and Transportation and logistics elements are not double-committed or duplicated.
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Annex E SitMan: Background Information 5-15 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan.
FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan. Annex E SitMan: Background Information 5-16 Pakyo’s Wrath .
Annex E SitMan: Background Information 5-17 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan.
Annex E SitMan: Background Information 5-18 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan.
FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan. Annex E SitMan: Background Information 5-19 Pakyo’s Wrath .
FOR OFFICIAL USE ONLY Guam All-Hazards Catastrophic CONOP Base Plan. Annex E SitMan: Background Information 5-20 Pakyo’s Wrath .
“Damaging winds” is defined as sustained winds with average speeds between 39 to 57 mile per hour (mph). “damaging winds” and “destructive winds”. having the strongest winds. Yet. 70% of the world’s tropical cyclones form in this region of the Pacific. the backside of the “eye wall” can be expected without warning with destructive winds coming from the opposite direction. Typhoon season runs from the 1st of June until the end of November. However with large typhoons damaging winds may extend outward 400 miles. Weak Tropical Storms generate damaging winds. in addition to destructive winds. Annex A G UA M E ME R G E NC Y R E S P ONS E P L A N (G E R P ) HAZARD SPECIFIC ANNEX A TROPICAL CYCLONE (I. Typhoons and Super Typhoons. Nature of Hazard Severe weather systems include thunderstorms and tropical cyclones. As a typhoon nears land. we are very concerned about the dangers of torrential rains and storm surges. A single typhoon can last for more than 2 weeks over open waters and can run a path across the entire length of the Western Pacific. Although the weather can be calm within the “eye”. Guam. STORMS AND TYPHOONS) Primary Agency: Guam Homeland Security/Office of Civil Defense (GHS/OCD) Support Agency: All Agencies I. SitMan: Background Information 5-21 Pakyo’s Wrath . A tropical cyclone is a general term for all large circulating weather systems over tropical waters. Tropical cyclones are classified by their intensity and include Tropical Depressions. Severe winds are generally categorized into two groups. The “eye” is generally 20 to 30 miles wide with an “eye wall”. Tropical cyclones in the intensity classifications of Tropical Storms. A tropical storm lingering over Guam for ten hours can sometimes cause more damage and destruction than a typhoon that quickly passes over Guam. A tropical cyclone becomes “significant” with the issuance of the first numbered warning by Joint Typhoon Warning Center as reported by the National Weather Service. Typhoon winds blow in a large spiral around a relative calm center known as the “eye”. Severe Tropical Storms. Typhoon and especially Super Typhoons can cause severe damage and destruction to property and infrastructure as well as cause injuries or death.E. “Destructive winds” has an averaged sustained wind speeds 58MPH and above. at which time the skies will begin to darken and winds will grow in strength. Typhoons and Super Typhoons generate destructive winds. tropical Storms. Tropical cyclones can strike Guam anytime throughout the year. the immediate perimeter of the “eye”.. The longer a tropical cyclone remains near or over Guam the more potential exists for severe damages as structures weaken from extended wind stress. As a typhoon approaches.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. typhoons have occurred in every month of the year. the weather could be clear until just a few hours before it strikes Guam. flooding increases and storm surges batter the shores.
under case-specific direction of the Governor.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. battering from heavy waves. and even telephone system failure may occur. provides track and intensity forecasts for all tropical cyclones in our region. However the Office of Civil Defense. with higher levels common. • II. Heavy Waves: The tropical cyclone can also cause numerous secondary hazards. Situation and Assumptions A. flooding of sewage treatment facilities. The rainfall associated with some tropical cyclones is on the order of 6 to 12 inches. or Typhoon (Categories 1 through 5) impacting Guam in less then 72 hours (3 days) However.g. The premise of this annex starts with the misunderstanding that Guam may receive damaging winds (39 mph sustained winds or higher) anytime of the year within 72 hours of a tropical cyclone development. Situation The formation of a Tropical Disturbance can intensify into a Tropical Cyclone (e. both direct wind pressure and drag. Along the shorelines. based in Hawaii. and tend to propel loose objects at high velocity. The Joint Typhoon Warning Center (JTWC). Electric power outages are common. The threshold for activation of this plan and annex for government-wide preparedness and response actions is based on the landfall of damaging winds on Guam. or torrential rain. Contamination of water supplies. Annex A A. The National Weather Service (NWS). Tropical Storm (Categories A or B). and a variety of secondary hazards. III. wind-driven water in estuaries and rivers. Flooding: Tropical cyclones can cause many different types of flooding. • • High Winds: The high winds impose significant stress loads on structures. sustained winds. Guam SitMan: Background Information 5-22 Pakyo’s Wrath . there have been cases of intensification into a typhoon in only 30 hours. The flooding can be still water flooding or velocity flooding caused by wave action associated with wind driven water along the shoreline. Tropical Cyclone development and intensification can begin right over Guam. the flooding may occur from storm surge. Hazard Agents The primary Hazard Agents associated with tropical cyclones are the high. Tropical Depression. Purpose The purpose of this annex is to provide and identify actions to take • Prior to • During. flooding from storm surge or heavy rains. may provide limited warnings or department/activity specific precautionary actions on a lower threshold such as the onset of damaging winds (39-57 mph sustained winds) or a severe thunderstorm. and • Immediately following a tropical cyclone forecasted to or already impacting the island. causing severe flooding. The rain may precede tropical cyclone landfall by hours and may persists for many hours after landfall.
A NWS “watch” announcement indicates that the severe weather system poses a possible threat generally within 48 hours. wooden signs not supported with guy wires blown down moderate damage to banana trees. Watches and Warnings. A Tropical Depression is within the Category A Tropical Storm classification but does not generate damaging winds and does not usually have a name assigned yet. position. dead palm fronds. and forecast of direction and intensity. in this order. At this classification. wind strength. some small dead limbs.e. At this classification. Tropical Depressions. 5) Typhoon Category 1 (minimal typhoon). The NWS uses the key words. unsecured light signs blown down. A NWS “alert” announcement indicates that the severe weather system formation has started. Not a tropical cyclone but an area with the potential for development into a tropical cyclone. watch and warning. 3) Tropical Storm Category A (weak tropical storm). or loosely attached corrugated metal or plywood. A tropical cyclone with maximum sustained winds within the range 50-73 mph. Tropical Storm Categories. Peak gusts are 65-94 mph. A tropical cyclone with maximum sustained winds within the range of 74-95 mph. Tropical Disturbances. papaya leaves blown from trees. and organizations with planned events may pay special attention to these NWS Alerts. 4) Tropical Storm Category B (severe tropical storm). ripe coconuts. papaya trees and most fleshy crops and large dead limbs. Thunderstorm. a tropical cyclone name is assigned. Peak gusts are 95-120 mph. ripe coconuts. to describe the increasing concern of a severe weather system approaching Guam. including thunderstorms. Peak gusts are 40-64 mph. NWS broadcasted information and public media releases include classification (i. usually after a tropical cyclone’s maximum sustained wind speed 39 mph (causing damaging winds) or higher. primarily from salt spray. or Typhoon Categories). A NWS “warning” announcement indicates that severe weather impacts are expected from the approaching weather system within 24 hours.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. Typical potential damage from a category B Tropical Storm includes minor damage to building of light materials. A tropical cyclone with maximum sustained winds within the range 30-49 mph. 1. In addition to messages released through the islands Emergency Alert System. precipitation. especially those living in substandard constructed homes. minor damage to banana trees and near costal agriculture. The general public. A category B Tropical Storm generates damaging winds when its sustained winds reach 58 mph or higher. un attached corrugated sheet metal and plywood may become airborne. NWS Tropical Cyclone classifications. 2) Tropical Depression. wave height. 1) Tropical Disturbance or Tropical Cyclone Formation Alert. alert. Typical potential damage from a category A Tropical Storm includes damage done to only the flimsiest lean to type structures. major damage to huts made of thatch. Typical Potential Damage to a SitMan: Background Information 5-23 Pakyo’s Wrath . Annex A evaluates JTWC forecasts for potential effects upon United States interests in the region and issues public announcements/advisories about these threats. some green leaves and small branches blown from trees. A tropical cyclone with maximum sustained winds of 38 mph or less. many dead palm fronds.. a tropical cyclone number is assigned. Usually “eye” formation begins in a typhoon.
many secondary power lines downed. and Australian pines blown down when the ground becomes saturated. major damage to shrubbery and trees. a few wooden. less that 10% defoliation of shrubbery and trees. minimal glass window failure due to pressure forces associated with extreme gusts. light cars begin to be moved and occasionally overturned. A tropical cyclone with maximum sustained winds within the range of 96-110 mph. 8) Typhoon Category 4 (very strong). Overall damage can be classified as extensive. up to 10% of coconut palms blown down. papaya trees and freshly crops. some palm fronds crimped and bent back and many ripe coconuts blown down. considerable damage to structures made of light materials. Overall damage can be classified as moderate. and some rotten poles broken. attached signs. 7) Typhoon Category 3 (strong typhoon). window. moderate damage to bamboo. 6) Typhoon Category 2 (moderate typhoon). African tulip and acacia. and some small tress limbs downed such as mango. some secondary power lines downed. vans. especially shallow rooted ones such as acacia. up to 10% defoliant of tangantangan. Peak gusts are 168-197 mph. light damage to bamboo. mango. some green coconuts blown from trees. some unsecured construction cranes blown down. Peak gusts are 121 – 139 mph. and some trees blown down.50% defoliation of many trees and shrubs. some large trees like breadfruit. Typical potential damage from a Category 2 Typhoon includes several rotten wooden power poles snapped and many non-reinforced wooden poles tilted. some young trees downed when the ground is saturated. exposed banana trees and papaya trees totally destroyed. 50% palms fronds bent or blown off. practically all poorly constructed signs blown down. acasia. non-reinforced power poles tilted. Overall damage can be classified as minimal.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. 70% defoliation of tangantangan. When a category 4 typhoon generates sustained winds of 150 miles or greater it is called a SitMan: Background Information 5-24 Pakyo’s Wrath .) blown over. A tropical cyclone with maximum sustained winds within the range of 131-155 mph. crowns blown off a few palm trees. damage to wooden and tin roofs but no damage to well constructed wooden. 30% . 10-20% defoliation of trees and shrubbery. Annex A Category 1 Typhoon includes corrugated metals and plywood stripped from poorly constructed or termite-infested structures and may become airborne. air is full of light projectiles and debris. Peak gusts are 140-167 mph. sheet metal. a few high-paneled vehicles (buses. and door damage to well built. major damage to poorly constructed. non-reinforced cinderblock walls blown down. major damage to banana trees. or concrete buildings. loosely attached signs. some stand – alone steel framed signs bent over. many buildings made of light materials destroyed. some roof. chain link fences begin to blow down. Typical potential damage from a Category 3 Typhoon includes a few non – reinforced hollow spun concrete power poles broken or tilted and many non reinforced wooden poles broken or blown down. numerous ripe and green coconuts blown off coconut palms. wooden and metal residences and utility buildings. some damage to poorly constructed. up to 30% defoliation of tangantangan . etc. monkeypod mango. many palm fronds crimped and bent and several green fronds ripped from palm trees. and breadfruit when the ground becomes saturated. A tropical cyclone with maximum sustained winds within the range of 111-130 mph.
Overall damage can be classified as catastrophic. to numerous reinforced hollow-spun concrete power poles. some structural damage to concrete structures. 75% of palm fronds bent or blown off. most small and medium – sized steel – framed signs bent over or blown down. Overall damage can be classified as extreme. A tropical cyclone with maximum sustained winds within the range of 156-194 mph. virtually all secondary and most primary power lines downed. such as cars. many large trees blown down ( palms. virtually all coconuts blown down from trees. considerable glass failures due to flying debris and explosive pressure forces created by extreme wind gusts. most standing trees are void of all but the larges branches.. numerous crowns blown from palm trees. especially from large debris. Typical potential damage from a category 5 typhoon include severe damage to some solid concrete power poles. which are very stubby in appearance and severely sand blasted. When forecasts of strong thunderstorms or damaging winds are received. most barks stripped from trees. tangantangan and oleander bent over or flattened. some fuel storage tanks rupture. window frames and doors. numerous large trees blown down. and most standing trees are void or all but the largest branches. with remaining branches stubby in appearance. some secured construction cranes and gantry cranes blown down. some fuel storage tanks may rupture. Typical potential damage from a category 4 typhoon includes some reinforced hollow-spun concrete and many reinforced wooden power poles blown down. acasia. extensive glass failure due to impact from flying debris and explosive pressure forces during extreme gusts. many well-built wooden and metal structures severely damaged or destroyed. extensive damage to non-concrete roofs. severe damage to bamboo. breadfruits. nearly all construction cranes blown down. air is full of large projectiles and debris. mango. air full of very large and heavy projectiles and debris. shrubs and trees 50-90% defoliated. upon coordination with the Governor. In the interest of public safety. many well constructed storm shutters ripped from structures. numerous secondary and a few primary power lines downed. monkeypod. 9) Typhoon Category 5 (devastating). etc. numerous trunks and branches are sand blasted. The GHS/OCD partners with the NWS and the military to receive advance and direct forecasts of severe weather threatening Guam. the GHS/OCD incorporates JTWC / NWS tropical cyclone track prediction uncertainty risk in to the decision making process. Peak gusts are 198-246 mph. and patches of panax. shrubs and trees up to 100% defoliated. total failure of non-concrete residences and industrial buildings. complete failure to many roof structures. many crowns stripped from palm trees. up to 100% palm fronds bent or blown off. numerous green and virtually all ripe coconuts blown from trees.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. and Australian pines). considerable bark stripped from trees.g. to many steel towers and virtually all wooden poles. cancel a government event. the GHS/OCD. Annex A super typhoon. complete disintegration of structures made of light materials. large appliances. may direct certain situation specific preparedness actions which may be impacted by the severe weather (e. weakly reinforced cinderblock walls blown down. up to 100% tangantangan defoliated. close SitMan: Background Information 5-25 Pakyo’s Wrath .
COR 3 (within 48 hours). public and private. Damaging winds may be generated by tropical storms A or B. the GHS/OCD directs government-wide preparedness or response actions which may affect the entire island’s population and businesses. These levels are called Conditions of Readiness. COR 1 (within 12 hours of occurring). Naval Forces Marianas. Therefore. B. COR 2 ( within 24 hours). Annex A government schools early. COR 1 checklists. Upon establishment of COR SitMan: Background Information 5-26 Pakyo’s Wrath . Advance and direct severe weather predictions will be provided by NWS and with partnering military weather service of U. except for extreme emergencies. major roads are cleared of hazards). Assumptions The most predictable natural disaster on Guam is the Tropical Cyclone. the entire population.FOR OFFICIAL USE ONLY Guam Emergency Response Plan.g. No outdoor activities allowed. When forecasts of destructive winds threatening Guam are received. especially outdoor requirements. not “Typhoon Conditions” or “Tropical Storm Conditions” These conditions are implemented or set by the Governor through the GHS/OCD in consultation with the Military. Damaging winds are expected within 12 hours or are occurring. The vulnerability to the people and property on Guam is 100%. COR 2: government-wide preparedness checklists are initiated usually prior to the setting of COR 2 in order to complete all COR 2 checklists before COR 1 is set. Upon the departure of a tropical cyclone’s damaging wind threat and significant safety concerns are resolved (e.) without disruption to overall government operations. Government-wide preparedness or response actions are organized into four action levels. Damaging winds (39 mph sustained winds or higher) impacting the island are possible within 72 hours. recovery actions to begin. The setting of each Condition Of Readiness is based on the forecasted onset of Damaging winds as follows: COR 4 (normal 72 hours). Damaging winds impacting the island are possible within 48 hours. Due to the risk of tropical cyclones developing and impacting the island with damaging winds within 72 hours any part of the year. the island is returned to the COR 4 level to allow immediate short term. etc. Damaging winds impacting the island are possible within 24 hours. are completed simultaneously with COR 2 requirements.. Destructive winds can be generated by either Strong Category B Tropical Storms or Typhoons.S. COR 3: government-wide preparedness checklists are initiated usually prior to the setting of COR 3 in order to complete all COR 3 checklists before COR 2 is set. must prepare for the event to minimize injury and damage. or Tropical Cyclones Conditions of Readiness (COR). the normal COR on Guam is level 4. and to better implement recovery.
IV. during. and after the tropical cyclone threat. Emergency shelters and mass care will also be considered and managed in addition to all appropriate Functional Annexes as outlined in the Guam Emergency Response Plan. The GHS/OCD will keep the Office of the Governor informed and appropriate actions will be taken to reduce the damaging wind effect on island residents. through the GHS/OCD. businesses. Annex A settings. materials & supply inventory). Therefore. with planning consideration transitioning EOC stakeholders with the National Response Framework concept of operations. Concept of Operations The GHS/OCD will manage all EOC activations in response to Tropical Cyclone events in line with the National Incident Management System. needs and resource shortfalls. off-island assistance may not be available for at least 72 hours. will be publicly announced. private. Response agencies will initiate their agencies severe weather preparation checklist and their respective agency’s Standard Operating Procedures (SOP) to prepare and respond to the severe weather threat. Tropical Cyclone Conditions of Readiness are set at the authority of the Governor in coordination with the military represented by U. The Governor. and military sectors will be conducted. activated at COR 2 and report to the Emergency Operation Center (EOC) at the Office of Civil Defense for heavy weather briefs. has the authority to modify. for the purpose of adapting or balancing government actions to needs and risk. The GHS/OCD will coordinate the activation and manage the EOC before. SitMan: Background Information 5-27 Pakyo’s Wrath . Updated copies of this plan and checklist will be provided to the GHS/OCD. coordinated preparation activities by the public. response team staffing. Organization The EOC Director will coordinate all agency tasking and action items under the Unified Command Structure organization as outlined in the National Incident Management System. Organization and Assignment of Responsibilities A. Agencies will establish a Plan of Action identifying agency preparations securing vulnerable critical facilities. CORs may not be set in consecutive order and may even be reversed as needed to adapt to rapidly changing tropical cyclone data. Due to Guam’s geographic isolation. vehicle.FOR OFFICIAL USE ONLY Guam Emergency Response Plan.S. commerce and the island infrastructure. All response agencies will be recalled at COR 3. the island community must work together and utilize all available local resources. The setting of CORs may not be exactly correlated with established time periods (could be set either before or after established time periods) in order to put into account case specific safety or economic situations. when necessary. delete or add to any established contingency checklist or procedure. Naval Forces Marianas. Such changes. V. response resources (equipment.
and supersedes the Territorial Emergency Plan of October 1978. Assignment of Responsibility The activities required to address all emergencies or disasters have been identified as either primary or support functions. VIII. Authorities and References A. The General Services Agency (GSA) will provide the logistics to source. 1991 • Guam Government Code 40400 SitMan: Background Information 5-28 Pakyo’s Wrath . When COR 3 is announced the Administration and Logistics function of the Unified Command System will begin preparation for response and recovery operations. as amended and related statutes. VI. Plan Development and Maintenance The Administrator of the Office of Civil (OCD) is responsible for the maintenance and revision of this annex. inventory and manage all response related resources and request for materials by establishing areas to collect. Administration and Logistics Upon activation of the Response Agencies. dated March 25. Along with the GHS/OCD. GSA will receive. DOA will establish emergency accounts for all response agencies to accommodate pre-event preparedness expenditures and activities up to deactivation of the response effort following the emergency or disaster. VII. Updates and revisions to the Annex will be made accordingly. Annex A B. acquire and distribute all response related materials and resources. and in accordance with the provision of Guam Civil Defense Act of 1951.S. Disaster Relief Act of 1974 • Guam Government Code 8501-8515. Chapter 8A Guam-Title-48 U.C. the Department of Administration (DOA) manages and tracks all emergency and disaster related expenses. or as needed.A. The assignment of Response Agencies functions has been identified in the Functional Annex Section. References governing the enactment and implementation of this are: • The Organic Act of Guam. 1422 • Public Law 93-288.FOR OFFICIAL USE ONLY Guam Emergency Response Plan. The GHS/OCD will review and exercise this Annex on an annual basis. stage and distribute all request for response materials and resources. (Public Law 1-21) • Guam Government Code 62020 • Executive Order of the Governor 91-09. Authorities This plan is issued under the authority of. A pre-typhoon season exercise will be conducted sometime between April – June per year as a part of Response Agency readiness activities.
Appendices See Functional Annexes A-O X. Annex A B. References The following publications/planning documents were utilized in formulating this Plan: • The Federal Response Plan (9230.FOR OFFICIAL USE ONLY Guam Emergency Response Plan.1 PL. Tabs A. Severe Tropical Cyclone Checklist B. FEMA) • Guide for All-Hazard Emergency Operations Planning (SLG 101. Severe Tropical Cyclones-Agency Preparedness C. FEMA) IX. Total Tropical Cyclone Occurrences (not included in SitMan) SitMan: Background Information 5-29 Pakyo’s Wrath .
FOR OFFICIAL USE ONLY Guam Emergency Response Plan. Annex A SitMan: Background Information 5-30 Pakyo’s Wrath .
Annex A SitMan: Background Information 5-31 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam Emergency Response Plan.
FOR OFFICIAL USE ONLY Guam Emergency Response Plan. Annex A SitMan: Background Information 5-32 Pakyo’s Wrath .
Annex A SitMan: Background Information 5-33 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam Emergency Response Plan.
Annex A SitMan: Background Information 5-34 Pakyo’s Wrath .FOR OFFICIAL USE ONLY Guam Emergency Response Plan.
Destructive winds of 50 knots or greater are anticipated within 12 hours or are occurring. and − Implement recovery plans. − Assess damage. for recovery efforts (including support to Civil Defense).FOR OFFICIAL USE ONLY D E P A R T ME NT C ONDIT IONS OF D E F E NS E OF R E A DINE S S Tropical cyclone Conditions of Readiness (COR) Definitions COR IV. − Lock base gates just prior to destructive winds. bldg. Destructive winds of 50 knots or greater are possible within 72 hours. This is the normal condition for Guam. and − Secure all personnel/facilities. until no longer necessary. COR II. Declared when destructive winds of 50 knots or greater are possible within 48 hours. Progression from COR I to COR IV COR I is declared when destructive winds (50 knots or greater) are anticipated within 12 hours or are occurring. − Establish Family Assistance Center (Chapel. Key preparations for after the storm has passed and winds no longer destructive BUT BEFORE COR IV ALL CLEAR IS DECLARED: − Recall personnel essential for recovery procedures. − Release non-essential employees. SitMan: Background Information 5-35 Pakyo’s Wrath . − Allow only emergency vehicles on streets. C). Key preparations: − Ensure CC remains activated. COR III. COR IV "ALL CLEAR”: Immediate threat hazards removed. Destructive winds of 50 knots or more are anticipated within 24 hours. Key preparations: − Make notifications. − Coordinate with Anderson Air Force Base (AAFB) and Civil Defense. and − Remove immediate threat hazards from roads and facilities. COR I. safe for non-essential employees to return to work. as needed.
followed by memorandum and e-mail). 475. CDO and Operations Department (N3) will monitor cyclone formation status on web site. Returning back to COR IV depends on damage assessments and removal of serious hazards completed first. providing sufficient daylight preparation hours and existing weather conditions. and Civil Defense (CD).FOR OFFICIAL USE ONLY Cyclone Forecasts and Warnings Initial Cyclone Formation Forecast and Warning: Naval Pacific Meteorology and Oceanography Center (NPMOC). CDO will relay notification to Executive Officer (N02/XO) and Disaster Preparedness Officer (N01P/DPO). Setting COR II should take into consideration logistics and costs of work and school release (if recommended during work/school hours since most offices and schools close at COR II). COMNAVMARIANAS chain-of command will be notified through XO (N02) and COS (N01/COS). COR setting is normally completed during a Heavy Weather Brief in the COMNAVMARIANAS Headquarters conference room which is attended by representatives of ACOS. XO and COS. Setting of CORs may be conducted via available communications between COMNAVMARIANAS and the Governor of Guam. and Guam Civil Defense (CD. Navy commands on Guam. CDO will notify COMNAVMARIANAS via DPO. Japan COMNAVMARIANAS Representative (Staff METOC Officer (SMO.Yokosuka will maintain cyclone tracking and forecast information on their internet web page. AAFB. Setting of appropriate COR will be conducted by COMNAVMARIANAS upon recommendations by SMO and consultation with Andersen Air Force Base Command Center (36th ABW and 13th AF. NPMOC . appropriately. Setting COR I is usually based on the onset of destructive winds. Yokosuka.9600). with assistance from N1 to send out ALMILACTS message. DPO and SMO will coordinate/schedule SMO (339-6141/6144) to provide regular or as needed heavy weather briefs to COMNAVMARIANAS. Cyclone-Alert and Setting of COR: SMO will notify CDO when destructive winds of 50 knots or greater are expected within 48 hours. 366.2981/9952). SitMan: Background Information 5-36 Pakyo’s Wrath . USCG. tenants. Code N3WEA)) will notify (phone call. Heavy Weather Briefings are coordinated by the DPO and SMO.
Sustained surface winds between 34-63 knots are present within the tropical cyclone. Smaller coastal structures destroyed and larger structures damaged.gov T R OP IC A L C Y C L ONE C L A S S IF IC A T IONS Tropical Depression. Damage primarily to unanchored mobile homes. Large trees blown down. poorly constructed signs.noaa. and window Knots/ damage of buildings. Small craft in unprotected anchorages break moorings. Some roofing material. door. 96-113 Knots/ 111-130 mph 114-135 Knots/ 131-155 mph 135 knots/ 155mph Storm surge generally 9-12 feet above normal. Saffir-Simpson Hurricane Scale Tropical Cyclone Severity Categories Winds 64-82 Knots/ 74-95 mph Typical effects (indicative only) Storm surge generally 4-5 feet above normal. Considerable damage to shrubbery and trees with some trees 96-110 mph blown down. Extremely dangerous with widespread destruction. Category 3 Category 4 Storm surge generally 13-18 feet above normal. and all signs are blown down.aoml. Some damage to poorly constructed signs. Storm surge generally greater than 18 feet above normal. Some roof and structural damage to small residences. and trees. Their severity is designated by category with “1” for weak cyclones to “5” for the most severe cyclones. shrubbery. Mobile homes and poorly constructed signs are destroyed. Typhoon. Significant roofing loss and structural damage. trees.FOR OFFICIAL USE ONLY Source: http://www. Considerable damage to mobile homes. Category 1 Category 2 83-95 Storm surge generally 6-8 feet above normal. Depressions have a closed circulation. 5-37 Pakyo’s Wrath Category 5 SitMan: Background Information . Power failure likely. Complete roof failure on many residences and industrial buildings. Dangerous airborne debris. Also. Super Typhoon. and piers. Minor house damage. eastern and central Pacific oceans typhoons are called hurricanes. Tropical Storm. Some complete building failures. The convection in tropical storms is usually more concentrated near the center with outer rainfall organizing into distinct bands. Sustained surface winds up to 33 knots are present within the tropical cyclone. Shrubs. Widespread power failure. In the Atlantic. Complete destruction of mobile homes. No real damage to building structures. This is the equivalent of a strong Category 4 or 5 hurricane in the Atlantic basin or a category 5 severe tropical cyclone in the Australian basin (see below for more information on hurricane categories). Sustained surface winds between 64-129 knots are present within the tropical cyclone. Sustained surface winds of 130 knots or greater are present within the tropical cyclone. some coastal road flooding and minor pier damage.
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This unified SitMan: Background Information 5-49 Pakyo’s Wrath . These practices. protocols. state. Territories. To ensure further coordination. Key features of NIMS Incident Command System (ICS). counties.gov/ F A C T S HE E T : N A T IONA L I NC IDE NT MA NA G E ME NT S Y S T E M (NIMS ) Release Date: 03/01/04 U. doctrinal changes. and will be able to place full emphasis on incident management when a homeland security incident occurs--whether terrorism or natural disaster. and local--will use to coordinate and conduct response actions. equipping. NIMS was created and vetted by representatives across America including Federal government. Advantages of NIMS NIMS incorporates incident management best practices developed and proven by thousands of responders and authorities across America. coupled with consistency and national standardization. planning. state. and townships. In addition. and during incidents involving multiple jurisdictions or agencies.noaa. will now be carried forward throughout all incident management processes: exercises. States. evaluating. NIMS makes America safer. Department of Homeland Security Secretary Tom Ridge today announced approval of the National Incident Management System (NIMS). Cities.aoml. and local lines of government for incident response. logistics. qualification and certification. NIMS establishes ICS as a standard incident management organization with five functional areas--command. the principle of unified command has been universally incorporated into NIMS. tribal. from our Nation to our neighborhoods NIMS establishes standardized incident management processes. and incident management. public affairs. and procedures that all responders--Federal. All of these measures unify the response community as never before. they will all share a common focus. the Nation’s first standardized management approach that unifies Federal. Tribal officials. national preparedness and readiness in responding to and recovering from an incident is enhanced since all of the Nation's emergency teams and authorities are using a common language and set of procedures. communications interoperability.FOR OFFICIAL USE ONLY Source: http://www. and finance/administration--for management of all major incidents. S. operations. and First responders. With responders using the same standardized procedures. and publications. training.
priorities. This will ensure that Federal. actions. supporting both routine maintenance and continuous refinement of the system and its components over the long term. coordinate. and flood insurance and property buy-out for frequently flooded areas. code enforcement in support of zoning rules.FOR OFFICIAL USE ONLY Source: http://www. and processes accomplished before an incident happens. multi-discipline and private authorities to assess prospective changes and assure continuity and accuracy. NIMS further places emphasis on mitigation activities to enhance preparedness. and public communications. NIMS preparedness measures including planning. tribal. and standardization of equipment maintenance and resources. The final revised document should be released during the summer of 2008. Standardized communications during an incident are essential and NIMS prescribes interoperable communications systems for both incident and information management. Responders and managers across all agencies and jurisdictions must have a common operating picture for a more efficient and effective incident response. training. and local levels of government are releasing the same information during an incident. land management. Preparedness incorporates a range of measures. state. qualification and credentialing of incident management and responder personnel. NIMS organizational measures enhance the public communication effort. Preparedness. Note: The revised NIMS document underwent a final national comment period from May 1May 30. state. Communications and Information Management. Mitigation includes public education and outreach. strategies. first responder communications and equipment. 2008. the NIC will be established by the Secretary of Homeland Security to assess proposed changes to NIMS. structural modifications to lessen the loss of life or destruction of property. capture. To ensure that NIMS remains an accurate and effective management tool. qualification and certification. The NIC will provide strategic direction and oversight of the NIMS. All of these serve to ensure that pre-incident actions are standardized and consistent with mutually-agreed doctrine. plans. The Joint Information System provides the public with timely and accurate incident information and unified public messages. equipment acquisition and certification. local. and evaluate lessons learned.gov/ command not only coordinates the efforts of many jurisdictions. and deliver a unified message. The NIC will continue to use the collaborative process of Federal. typing of resources. The NIC will develop and facilitate national standards for NIMS education and training. SitMan: Background Information 5-50 Pakyo’s Wrath . and publication management. NIMS Integration Center (NIC). and employ best practices. but provides for and assures joint decisions on objectives. This system employs Joint Information Centers (JIC) and brings incident communicators together during an incident to develop.aoml.noaa. Joint Information System (JIS). and building codes. exercises.
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