Scenario-Driven Planning

Workshop Process

DRAFT

December 21, 2004

IEM/TEC04-104
Prepared By
IEM, Inc.
Four United Plaza
8555 United Plaza Blvd., Suite 100
Baton Rouge, LA 70809

Prepared For
FEMA
500 C Street S.W.
Washington, D.C. 20472

Prepared Under
FEMA BPA HSFEHQ-04-A-0288, Task Order 001

Disclaimer
This document is for reference only. Readers should not construe this document as
representing official FEMA policy or regulations. Conflicts with existing policy or
regulations should be addressed to FEMA Headquarters, 500 C Street S.W., Washington,
DC 20472.
 Scenario-Driven Planning Workshop Process—DRAFT

EXECUTIVE SUMMARY
The common exercise process uses a scenario to drive execution of the plan and is
designed to evaluate plans already in place. After the exercise, an after-action report
details needed improvements, with changes in emergency plans coming later. The
scenario-driven planning workshop produces functional plans ready to use immediately
post-workshop. This process is extremely useful for addressing jurisdictional conflicts
and the participation by a variety of Federal, State, local, and volunteer agencies
enhances the interoperability of the plans.

The concept of a scenario-driven planning workshop was introduced with much success
in July 2004 when over 350 participants spent eight days producing a plan for response to
and recovery from a catastrophic hurricane striking southeast Louisiana. This workshop,
along with a follow-on workshop held November–December 2004, produced a series of
15 functional plans.

This document outlines the process used to develop and implement a scenario-driven
planning workshop, including workshop management, workshop planning, conducting
the workshop, and post-workshop activities.

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TABLE OF CONTENTS

1.0 INTRODUCTION 1

2.0 WORKSHOP MANAGEMENT 1

2.1 Roles and Responsibilities 1
2.1.1 Unified Command 1
2.1.2 Steering Committee 2
2.1.3 External Affairs 2
2.1.4 Workshop Design 2
2.1.5 Administrative/Finance 3
2.1.6 Logistics 3
2.1.7 Operations 3
2.1.8 Plans 3

3.0 WORKSHOP PLANNING PROCESS 4

3.1 Master Plan 4

3.2 Historical Data Collection, Scenario Definition, and Consequence Development 4

3.3 Workshop Support Materials 5

3.4 Logistics 5

4.0 CONDUCTING THE WORKSHOP 6

5.0 POST-WORKSHOP ACTIVITIES 6

6.0 CONCLUSIONS 7

7.0 POINTS OF CONTACT 8

APPENDIX: PROCESS FLOW CHARTS 9

Pre-Workshop 9

Workshop 10

Post-Workshop 11

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1.0 Introduction
The common exercise process uses a scenario to drive execution of the plan and is
designed to evaluate plans already in place. After the exercise, an after-action
report details needed improvements, with changes in emergency plans coming
later. The scenario-driven planning workshop produces functional plans ready to
use immediately post-workshop. This process is extremely useful for addressing
jurisdictional conflicts and the participation by a variety of Federal, State, local,
and volunteer agencies enhances the interoperability of the plans.

The concept of a scenario-driven planning workshop was introduced with much

success in July 2004 when over 350 participants spent eight days producing a plan
for response to and recovery from a catastrophic hurricane striking southeast
Louisiana. This workshop, along with a follow-on workshop held November–
December 2004, produced a series of 15 functional plans.

This document outlines the process used to develop and implement a scenario-
driven planning workshop.

2.0 Workshop Management

In order for any process to be successful, a well-defined management structure
must be in place. For a scenario-driven planning workshop of this type, the
following management structure is suggested.

Figure 1: Workshop Management Structure

2.1 Roles and Responsibilities

The roles and responsibilities of each organizational element are described in the
sections below.

2.1.1 Unified Command

The workshop’s Unified Command provides senior leadership for the workshop
and is composed of members from FEMA Headquarters, the appropriate FEMA

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Region(s), leaders from the appropriate state(s), and other senior leaders as
deemed necessary. The Unified Command will:
• Approve the workshop concept, working group leads, and any associated
budgets
• Represent key management positions during the workshop
• Provide guidance to the workshop’s Steering Committee on all workshop-
related matters
• Provide guidance to the External Affairs group

2.1.2 Steering Committee

The workshop’s Steering Committee provides oversight on workshop-related
matters as directed by the Unified Command. It is composed of members from
FEMA Headquarters, the appropriate FEMA Region(s), the appropriate state(s),
and others as prescribed by the Unified Command. The Steering Committee will:
• Brief the Unified Command periodically on all workshop matters
• Oversee the development of the workshop concept
• Recommend leads for all working groups to the Unified Command for
approval
• Develop the workshop budget in association with the
Administrative/Finance working group
• Direct and monitor tasks assigned to each working group
• Brief the applicable State and local emergency management agencies on
the workshop concept
• Approve the list of workshop participants

2.1.3 External Affairs

The External Affairs group is composed of members from FEMA Headquarters,
the appropriate FEMA Region(s), and the appropriate state(s) and will:
• Work directly with the Unified Command and have a staff relationship
with the Steering Committee
• Coordinate media affairs for the workshop

2.1.4 Workshop Design

The Workshop Design group is composed of members from the appropriate
FEMA Region(s), the appropriate state(s), contractor representatives, and other
subject matter experts as prescribed by the Steering Committee and will:
• Develop the workshop scenario and consequences based on the scenario
• Develop and produce workshop support materials (e.g., participant
information packet and visual aids)

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• Collect and make available all existing plans, models, and studies relevant
to the workshop
• Train workshop facilitators and recorders
• Work in conjunction with the Steering Committee to develop the
workshop mission, session objectives, and end products
• Develop a standard format for all workshop products
• Perform other workshop design duties as specified by the Steering
Committee

2.1.5 Administrative/Finance
The Administrative/Finance group is composed of members from FEMA
Headquarters, the appropriate FEMA Region(s), and the appropriate state(s) and
will:
• Develop detailed budgets for both Federal and State entities
• Develop reports for each working group for monitoring spending
• Coordinate with each working group to develop a directory of all
workshop participants
• Coordinate hotel accommodations for participants identified by the
working groups
• Develop administrative and security requirements for the workshop

2.1.6 Logistics
The Logistics group is composed of members from the appropriate FEMA
Region(s) and the appropriate state(s) and will coordinate all logistical support for
the workshop (e.g., computers, printers, fax machines, duplication services, and
projectors).

2.1.7 Operations
The Operations group is composed of members from the appropriate FEMA
Region(s) and the appropriate state(s) and will:
• Coordinate workshop personnel support
• Coordinate with the Plans working group to ensure proper development of
all workshop products
• Create, in conjunction with the Plans working group, all situational and
operational briefings during the workshop

2.1.8 Plans
The Plans group is composed of members from the appropriate FEMA Region(s)
and the appropriate state(s) and will:
• Facilitate work with the workshop contractor

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• Ensure continuity among all workshop products

• Compile limiting factors after each workshop session and propose
solutions
• Create, in conjunction with the Operations working group, all situational
and operational briefings during the workshop

3.0 Workshop Planning Process

3.1 Master Plan

The workshop’s master plan, developed by the Steering Committee with support
from all other working groups, is based on the approved workshop concept and
serves as the blueprint for the entire workshop. The master plan:
• Defines the workshop’s mission, objectives, and end products. Well-
defined objectives ensure that the workshop will successfully achieve the
mission. A daily schedule for each planning group can be developed based
on the objectives.
• Defines the planning areas to be addressed during the workshop. These
planning areas include the permanent planning areas, where the topic
remains constant throughout the entire workshop. A suggested list of
temporary planning areas, topics that will be specified by the Unified
Command on a daily basis, should also be included. The size and length of
the workshop will dictate the number of planning areas that can be
sufficiently addressed.
• Describes the workshop organization and identifies leadership
• Defines a standard format for all products to be produced during the
workshop
• Includes the product maintenance plan, used to maintain, update, and
validate workshop products over time, as appropriate
• Identifies agencies participating in the workshop and defines their roles
• Defines the workshop calendar and milestones
• Identifies workshop logistical needs

3.2 Historical Data Collection, Scenario Definition, and

Consequence Development
Prior to the workshop, all existing plans, models, studies, and data relevant to the
workshop topics will be gathered by the Workshop Design group. This
information is not only useful for developing the scenario and associated
consequences, but ensures that workshop participants will have a starting point for
their work. This eliminates the danger of losing valuable workshop time

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performing research or generating information that already exists. A copy of all

historical data will be provided to each participant via electronic media.

Development of the scenario is the responsibility of the Workshop Design

working group. The scenario should be realistic and detailed enough to help
participants achieve their workshop objectives, yet not so detailed as to allow
participants to get “lost” in the details.

Consequences based on the workshop scenario will be developed by the

contractor. After initial development of the consequences, review and approval by
both the Workshop Design group and critical stakeholders is necessary to ensure
concurrence with results prior to the workshop.

3.3 Workshop Support Materials

A variety of support materials are necessary for workshop success. Each
workshop participant will receive a participant information packet developed by
the Workshop Design group containing:
• Workshop schedules and objectives
• Workshop key contact information
• Scenario and consequence narratives and briefings
• Complete participant roster
• Administrative information

Maps and other visual aids representing the scenario consequences should be
provided for each planning group. The format of these aids will be determined by
the Workshop Design group.

Security badges will also be provided by the contractor. Security requirements

will depend on the workshop location.

3.4 Logistics
Workshop logistical needs will be identified by the workshop’s master plan. Once
these needs have been identified and a location is secured for the workshop,
logistical support can then be provided. This support will be coordinated by the
Logistics working group.

The Exercise Design group will work with other working groups and the Steering
Committee to secure participant commitments from all identified participating
organizations. These participants will be tracked using a workshop participant
database.

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The Administrative/Finance working group will coordinate hotel accommodations

for all participants, as well as send letters of invitation/travel authorization to
participants that have committed to attending the workshop.

4.0 Conducting the Workshop

Prior to the start of the first workshop session, an orientation briefing should be
provided to all participants. This briefing should inform the participants as to the
mission and objectives of the workshop, daily protocol, scenario information, and
initial consequence information. Prior to each workshop session, daily briefings
with updates on scenario and consequence information should be given.

Participants will report daily to their assigned planning areas, where they will
work to achieve the daily objectives specified by the workshop master plan. These
planning areas may be permanent planning areas, where the topic remains
constant throughout the entire workshop, or temporary planning areas, with topics
specified by the Unified Command on a daily basis. These temporary planning
areas (also referred to as action topics) will draw their participants from the
permanent planning areas (also referred to as breakout topics), based on direction
from the Unified Command and the Operations working group.

At the conclusion of each workshop session, each planning group will brief the
Unified Command on the group’s progress. The briefing team should include at
least one representative each from Federal, State, and local agencies. After
reviewing each session’s results, the Unified Command will determine the
temporary planning areas for the next workshop session. The contractor will then
prepare updates to workshop materials for distribution to each participant before
the following workshop session.

At the conclusion of the final workshop session, each planning group will brief
the Unified Command and FEMA Headquarters on the draft workshop products.
This briefing can also serve as the closing briefing to all participants. It is
important that all participants are made aware of the need for continued
maintenance of the workshop products and the procedures for achieving this.

5.0 Post-Workshop Activities

The draft products produced during the workshop will need refinement.
Following the workshop, the contractor will edit the workshop products and
submit them as drafts to the Unified Command for review and approval.
Following final approval, copies of the products will be distributed to all
workshop participants along with a letter thanking each participant for their
contributions.

Following the completion of the workshop and approval of the final products, the
product maintenance plan will be implemented. This plan will ensure that the
workshop products remain current and are periodically validated.

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6.0 Conclusions
The benefits of a scenario-driven planning workshop are numerous. Perhaps most
importantly, the products produced can be implemented immediately. The
workshop also allows operational personnel to contribute to the plans that they
will ultimately execute.

This process yielded a very successful series of workshops in Louisiana. The

process may need refining or modification for further workshops in other areas;
however, the core concepts outlined in this document should provide a basis for
all future scenario-driven planning workshops.

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7 . 0 P o i n ts o f C o n ta c t
The IEM point of contact for this report is Brad Tiffee. He may be reached at:

IEM, Inc.
8555 United Plaza Blvd., Suite 100
Baton Rouge, LA 70809
(225) 952-8229
(225) 952-8122 (fax)
brad.tiffee@ieminc.com

The alternate point of contact is Wayne Thomas. He may be reached at:

IEM, Inc.
2751 Buford Highway, Suite 204 Druid Pointe
Atlanta, GA 30324
(404) 214-0330
(404) 214-0337 (fax)
wayne.thomas@ieminc.com

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Appendix: Process Flow Charts

Pre-Workshop
Master Plan
FEMA, State(s),
Develop and
and Others Develop Support Materals
Develop Workshop Secure Workshop Produce
Approve Concept Contractor
Concept Contractor Workshop Support
and Obligate Statement of Work
Materials
Funding
Consequence Maps
Scenario Aids
Participant Guide
Identify Major Players Security Badges
Determine Workshop Location Collection of Previous
Suggest Workshop End Products Collect Relevant Plans/Models/Studies
Develop Project Train Workshop
Develop Timeline of Events Develop Workshop Existing Plans,
Organization and Facilitators and
Determine Required Funding Master Plan Models, and
Identify Leadership Recorders
Studies

Project Lead
Workshop Steering Committee
Workshop Design Team
Define Workshop Develop Standard Identify
Personnel for Workshop Planning Efforts Define Project
Mission, Format for Plans Participating Develop Workshop
Unified Command/Senior Leadership Calendar and
Objectives, and to be Produced Organizations and Scenario
Operations Group Milestones
End Products During Workshop Their Roles
Plans Group
Logistics Group
Finance/Administration Group
External Affairs Group Develop Daily Well-Defined Objectives Emphasis on Continuity
Schedule for Each Ensure During the Workshop
Determine
Planning Group Success
Logistical Needs
Based on Definition of Workshop
Objectives Develop
End Products
Consequences
Develop Plan to Based on Scenario
Maintain and Develop
Secure Participant
Update Workshop Participant
Commitments
Products as Database
Appropriate

Scenario and
Consequences
Send Letters of
Obtain Hotel Invitation Letters
Secure Location Invitation/Travel
Accommodations
for Workshop Authorization to
for Participants
Participants

Computers
Provide Logistical
Printers
Support for
Fax Machines
Workshop
Duplication Services
Projectors and Screens

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Workshop
Conduct
Set Up for Orientation
Workshop Briefing for
Participants
DAILY WORKSHOP ACTIVITY

Conduct Scenario
and Consequence
Briefings

Planning Groups Populate Action

NO Work on Plans Rooms

Daily Workshop Planning Groups

Conduct Closing Draft Workshop Products Brief Unified
Briefing to Products Command
Participants

Conduct Final Unified Command

Ensure Produce Draft
Briefing to Unified Determines New
Commitment to Workshop Last Day?
Command and Action Room
Maintenance Products
FEMA HQ Topics

YES

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Post-Workshop

Draft Workshop Brief End Products

Determine Edit Workshop FEMA, State(s), and
Products to Leadership at
Timelines for End Products and Other Agencies
FEMA, State(s), and
Product Submission Submit for Review Approve Products
Other Agencies

Produce Joint Final Draft

Final Workshop Distribute Final
Letter from Workshop
Products Workshop Initiate Product
Workshop Products Products to Maintenance Plan
Leadership to
Participants
Participants

Letter to
Participants

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