Command-Level Decision Making for Transportation Emergency Managers (2022)

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Page 1 CHAPTER 1: INTRODUCTION 1.1 Summary TCRP Project A-36, an ongoing Transportation Research Board (TRB) Cooperative Research Programs project since at least 2010 entitled “Command Level Decision Making for Emergency Managers” evolved into development of the Transportation Emergency Response Application (TERA). TERA is web-based software designed to simulate the Emergency Operations Center (EOC) environment and conditions that approximate transportation emergency conditions, thus allowing users to become familiar and practiced in transportation emergency response and recovery. TRB contracted with Engineering and Computer Simulations (ECS) Inc. since 2010 to lead TERA development and implementation. Under the terms of ECS’s contract with TRB, TERA is available free of charge to US-based transportation agencies. As the project concluded, ECS implemented the “2019 Continuance” of the TCRP A-36 Project. This continuance involved engaging prospective users via TERA Introduction Webinars, providing support to transportation agencies that wish to run TERA scenarios, and facilitating a certain number of scenario validation exercises. Together, elements of this scope of 2019 work market TERA utility and availability, foster greater TERA use, and ensure the quality of the TERA interface, scenarios, and overall user experience. 1.2 Background Events such as the terrorist attacks of 9/11 and Hurricane Katrina have shown that a critical element of a successful response is the ability for public and private transit agencies to work as coordinated teams with leading counterpart local, state, and federal emergency response organizations. The National Response Framework (U.S. Department of Homeland Security, rev. October 28, 2019, http://www.fema.gov/national-response-framework) provides a scalable, flexible, and adaptable framework for coordinating agencies such as transportation agencies to align key roles and responsibilities as they manage incidents from local events up to large-scale terrorist attacks or catastrophic natural disasters. The national framework calls for cooperation and understanding between local communities, tribes, states, the federal government, and the private sector as they strive to achieve shared goals. Moreover, outlined in the National Response Framework is the Incident Command System (ICS) which is a standardized, all-hazards incident management approach for integrating facilities, equipment, personnel, procedures, and communications operating within a common organizational structure, enabling coordinated response among various jurisdictions and functional agencies, both public and private, and establishing common processes for planning and managing resources. During an emergency, each responding agency is responsible for developing the capabilities needed for a timely and effective response by making assessments and providing resources and information. In order for transit agencies to be prepared for unexpected incidents or emergencies, realistic and consistent training must be offered to personnel before and after an event. Effective response as described in this framework prefaces itself upon well-trained leaders and responders who have developed engaged partnerships and are able to achieve shared objectives. The aim of the “Command-Level Decision Making for Emergency Managers” project was to develop a Transportation Emergency Response Application (TERA) to achieve the goals as outlined in the National Response Framework through simulation guided experiential learning. TERA provides training and exercise for command level roles in the transportation agency emergency operations center in relation to mitigating transit- and state-DOT-specific emergencies and supporting state and local emergency management authorities in natural or manmade disaster incidents. 1.3 Contract Tasks Contract Number TCRP A-36 was awarded to ECS on November 1, 2010. Although the substantive work was completed in late 2020, the contract completion date was June 30, 2021, to accommodate for the compilation and submission of this final report.

Page 2 Under the contract, are three distinct Phases of effort, under which Tasks exist, that guided the program, and are summarized as follows: Phase I Tasks: Task 1: Analyze and describe emergency response training needs for transit agency management and supervisory level staff, including (a) training needs associated with assessing critical incident decision making under real-world constraints and (b) needs for NIMS compliance. Task 2: For transit agency staff positions (command and general staff under the Incident Command System) identified in Task 1, identify prerequisites (e.g., prior training and familiarity with specific documents and definitions) for using the scenario-based training system that will be developed in Phases II and Ill. Task 3: Based on Tasks 1 and 2, identify appropriate learning objectives to be addressed through application of the scenario-based training system. For the identified learning objectives, describe how the scenario-based training system will provide monitoring, evaluation, and feedback to users and training administrators. Task 4: Develop an outline for the scenario-based training system for use in simulations ranging from 2 to 48 hours of play, with opportunities for all player roles (potentially 100+ roles). The scenario-based training system will provide transit-specific scenarios. The outline should cover the potential events and message-injects from the onset of emergency through recovery and shall include all disciplines. The resulting scenario-based training system should provide an immersive environment for exercising emergency response decision making by command and general staff at transit agencies/properties. Task 5: Submit an interim report on the information developed in Tasks 1 through 4. The interim report shall also contain a detailed, updated P hase II work plan. Phase II Tasks: Task 6: Submit a revised Phase II work plan based on panel decisions at the Task 5 interim meeting. Task 7: Develop story boards for the scenarios and a detailed outline for a facilitator's guide and a user's guide. Task 8: Develop a prototype module of the scenario-based training system that implements one of the hazard scenarios. The prototype should be suitable for field testing at small, medium, and large transit agencies. Task 9: Field test the Task 8 generic module with at least 3 representative transit agencies. Report on the user experience in a technical memorandum. Task 10: Submit interim report #2 providing the results of Tasks 7 through 9. The interim report should also include a test plan (to be executed under Task 13) for the scenario-based training system. Task 11: Submit the revised Phase III work plan based on decisions at the panel meeting. Phase III Tasks: Task 12: Develop the scenario-based training system in accordance with the approved Phase III work plan. At a minimum, the system should (a) include an electronic incident command board function; (b) simulate use of multiple communications media; (c) simulate the layout of the transit incident, including affected resources, assets, networks, and systems; (d) display the environment with sufficient detail for players to understand their position and orientation in the environment; and (e) allow players to manipulate their environment as necessary, including record-keeping. The scenario-based training system must be supportable by independent, third-party controller / evaluator positions (i.e., the vendor or the vendor's representative should not be the controller / evaluator). The scenario-based training system should have manual authoring capability for development of

Page 3 environments and hazards (e.g., any transit agency should be able to customize the scenario-based training system to reflect its environment). Task 13: Execute the test plan as described in the approved Phase III work plan. Prepare a technical memorandum on the test results, documenting issues and how they will be resolved in Task 14. Task 14: Revise the scenario-based training system to resolve issues identified through tests. Task 15. Submit a final report that documents the entire research effort. Include, as separate deliverables, the software, the facilitator's guide, and the user's guide. In addition, provide a stand-alone Executive Summary; an updated implementation plan; and a PowerPoint presentation summarizing the background, objectives, research method, results, and benefits. 1.4 Accomplishments This document is to summarize prior reports that are available on-file, and to primarily focus on the most recent Phase III Tasks and associated accomplishments. In summary, as reported in prior reports, and as supplemented herein, we have demonstrated the following Accomplishments: Phase I Accomplishments During Phase I (Tasks 1-5), we achieved the following objectives:  Wrote a Training Needs Analysis report that ­ Identified the transit concentration areas (transit mode and/or mean) ­ Identified primary transit agency command-level decision making roles ­ Identified the primary functions of transit agencies (primary behavioral functions) ­ Identified primary cognitive functions and associated processes of transit agency command-level decision makers ­ Identified prerequisite knowledge and supplemental training individuals should receive prior to engaging in a TERA exercise ­ Incorporated the TCRP review panel’s feedback/guidance and data from follow-up interviews from Tier One transit cities  Wrote role-based learning objective profiles that ­ Identified and described the terminal and enabling outcomes ­ Identified the tasks, conditions, standards, and expected actions ­ Identified and applied instructional strategies and performance measures for each enabling outcome  Wrote a scenario timeline that ­ Identified and outlined the prototype structure of major events and time segments ­ Identified and documented the progression and simulated content and injects that drive the storyline  Wrote a prioritized list of potential TERA scenarios that ­ Identified and categorized story types as natural or manmade disasters with task functions ­ Identified and discussed the scenario’s applicability issues to transit emergency management Phase II Accomplishments: During Phase II (Tasks 6-11), we achieved the following objectives: • Developed storyboards and facilitator/user guides o Developed draft facilitator and user guides. These guides were submitted for review and were also available on the prototype TERA portal at tera.train-emst.com o Wrote high-level outlines for all six scenarios as identified in Phase I (see Appendix A) that describe details such as plot summary, various service disruptions, and transit authority tasks.

Page 4 o Wrote storyboards for software engineers to translate and transfer instructional content such as inject type and content, time, incoming & outgoing recipients, response feedback, and consequences into TERA. • Developed a prototype module o Identified and implemented artifacts such as video clips (e.g., TV news), email attachments, forms, and website news articles to support immersion in the prototype (flood with hazardous materials) scenario. o Performed internal quality control checks which included scenario test runs and inject timing adjustments. o Released the prototype to the TERA portal at tera.train-emst.com. • Performed field testing of the prototype module o Conducted field tests at three different transit agencies. o Evaluated and documented participant reactions concerning usability of the system, content realism and accuracy, and training effectiveness. Phase III Accomplishments: During Phase III (Tasks 12-15), we achieved the following objectives: • Developed the scenario-based training system o Implemented the remaining five TERA scenarios on the latest baseline of the core platform including simulated multiple communications media such as phone, email, websites, television, fax, bulletins, forms, and face to face interactions. o Added any specialized user interface components necessary to simulate the workflow of a transit emergency operations center that is relevant to critical incident management. o Conducted a final field test to generate a Kirkpatrick Level 2 evaluation with pre- and post- testing that focuses on participants’ ability to meet learning objectives. • Executed Test Plan o Executed the Internal (Beta) Test Plan on the beta release candidate to include automated scenario runs, inject acceptance tests, component acceptance test, assessment acceptance test, and browser compatibility acceptance test. o Delivered the completed Internal Test Plan to the TCRP as part of our quality assurance process. • Resolved Issues Identified through Tests o Addressed all software issues by documenting them in an external test document and verifying fixes through confirmation by test personnel. o Released the final software package for delivery when all issues were resolved. • Prepared and Submitted Final Report o Wrote and submitted a final report that documents all three phases of the TERA project. The final report details the overall scope and goals for the project and research plan for each task including the background, objectives, research methods, results, and benefits of TERA. 1.5 Purpose of Report The purpose of this report is not to reiterate the detailed analysis of prior reports, but rather to incorporate them by reference. The project has concluded, all previous reports have been filed, and this report is to synopsize the overarching outcomes from the recent conclusion of Phase III activities under the contract.