Volume I: Overview and Doctrine
U.S. Department of Homeland Security

Office for Domestic Preparedness

810 Seventh Street, NW.

Washington, DC 20531

Tom Ridge

Secretary

______________________________________________

Office for Domestic Preparedness

World Wide Web Homepage:

www.ojp.usdoj.gov/odp

______________________________________________

ODP HelpLine

1–800–368–6498

______________________________________________

X

Cover photographs include images from the Federal Emergency Management Agency Photo Library (www.fema.gov)

and the National Sheriffs’ Association.
U.S. DEPARTMENT OF HOMELAND SECURITY

OFFICE FOR DOMESTIC PREPAREDNESS

 

Homeland Security 

Exercise and Evaluation 

Program 

 

Volume I: Overview and 

Doctrine 

 

 

Revised May 2004 
Preface 

The National Strategy for Homeland Security and the Homeland Security Act of 2002 identify 

the “prevention of terrorist attacks within the United States” and “the reduction of vulnerability 

of the United States to terrorism” as national priorities, and call on first responders to “minimize 

the damage and assist in the recovery from terrorist attacks that do occur within the United 

States.” The Homeland Security Act also transferred the Office for Domestic Preparedness 

(ODP) from the U.S. Department of Justice (DOJ) to the U.S. Department of Homeland Security 

(DHS), and assigned ODP “the primary responsibility within the executive branch of

government to build and sustain the preparedness of the United States to reduce vulnerabilities, 

prevent, respond to, and recover from acts of terrorism.” 

Although effective approaches to planning, training, and exercises have been developed to 

mitigate the effects of natural and manmade disasters, homeland security professionals at all 

levels of government and in all types of communities must prepare to prevent and respond to 

new threats to public safety from terrorism involving the use of chemical, biological, 

radiological, nuclear, or explosive (CBRNE) weapons or cyber or agricultural hostility. 

DHS/ODP has designed its programs to address the delta between the “all hazards” emergency 

response requirements needed for natural disasters and the specialized requirements related to 

terrorism. Under the Homeland Security Grant Program (HSGP), U.S. States and territories and 

the District of Columbia have conducted risk and needs assessments and developed homeland 

security strategies. DHS/ODP provides grant funds and direct support to help address the 

equipment, training, and exercise needs identified in these strategies. 

The Homeland Security Exercise and Evaluation Program (HSEEP) reference manuals deliver an 

exercise program that helps address identified planning, training, and equipment needs and 

provides homeland security professionals with the tools to plan, conduct, and evaluate exercises 

to improve overall preparedness. 

This manual, HSEEP Volume I: Overview and Doctrine, provides a synopsis of DHS/ODP’s 

overall preparedness activities as well as its exercise program and the planning and evaluation 

process. This document is the first in a series of HSEEP resources that includes three additional 

volumes to help State and local jurisdictions establish exercise programs and design, develop, 

conduct, and evaluate exercises. The HSEEP resource documents include the following 

manuals, available at the DHS/ODP Web site (http://www.ojp.usdoj.gov/odp/docs/hseep.htm): 

HSEEP Volume I: Overview and Doctrine provides requirements and guidance for the 

establishment and maintenance of a homeland security exercise program. 

HSEEP Volume II: Exercise Evaluation and Improvement offers proven methodology 

for evaluating homeland security exercises and implementing an improvement program. 

HSEEP Volume III: Exercise Program Management and Exercise Planning Process

helps planners establish an exercise program and outlines a standardized design, develop, 

conduct, and evaluation process adaptable to any type of exercise. 

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HSEEP Volume IV: Sample Exercise Documents and Formats provides sample 

exercise materials referenced in HSEEP Volumes I–III. These materials are available 

on a secure Web-based portal discussed in further detail in chapter 2 under “Resources 

to Implement HSEEP.” 

Developing and implementing a comprehensive exercise program is a continually evolving 

process. This manual describes current requirements and assistance available from DHS/ODP. 

As homeland security strategies, policies, and plans change, future revisions will be issued to 

incorporate necessary updates. 

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Table of Contents 

Preface......................................................................................................i

Introduction..............................................................................................1

Background................................................................................................................................. 1 

Purpose and Scope ...................................................................................................................... 2 

For Official Use Only (FOUO)/Sensitive Information............................................................... 3 

Chapter 1 – Homeland Security Program ................................................5

DHS/ODP Program Management............................................................................................... 5 

Grants Management and Planning.............................................................................................. 6 

State Homeland Security Strategy .......................................................................................... 6 

Scheduling............................................................................................................................... 7 

Technical Assistance Program................................................................................................ 7 

Equipment Acquisition ............................................................................................................... 8 

Training Support......................................................................................................................... 9 

State-Level Training ............................................................................................................... 9 

Annual Training and Exercise Conference........................................................................... 10 

Exercise Support....................................................................................................................... 10 

National Exercise Program ................................................................................................... 10 

TOPOFF National Exercise Series................................................................................... 12 

National Special Security Event Exercises....................................................................... 12 

Senior Officials Exercises................................................................................................. 12 

Annual Evaluated Exercise/Exercise Credit......................................................................... 12 

State and Local Exercises......................................................................................................... 13 

Chapter 2 – Homeland Security Exercise and Evaluation Program......15

Definition .................................................................................................................................. 15 

Doctrine..................................................................................................................................... 16 

State Homeland Security Exercise and Evaluation Program.................................................... 16 

State Strategies.......................................................................................................................... 17 

Threat-Based Scenarios ............................................................................................................ 17 

Performance of Plans, Policies, and Procedures....................................................................... 18 

Prevention Exercises................................................................................................................. 18 

Response and Recovery Exercises............................................................................................ 19 

Interagency/Interjurisdictional Exercises.................................................................................. 19 

Private-Sector Coordination...................................................................................................... 19 

Regional/International Exercises.............................................................................................. 20 

Resources To Implement HSEEP ............................................................................................. 20 

Grant Funds........................................................................................................................... 20 

Exercise Funding .................................................................................................................. 21 

Direct Exercise Support........................................................................................................ 21 

Secure Web-Based Portal ..................................................................................................... 21 

Exercise Toolkit.................................................................................................................... 22 

Lessons Learned and Best Practices......................................................................................... 22 

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Chapter 3 – Exercise Types ...................................................................23

Discussion-Based Exercises...................................................................................................... 23 

Seminars................................................................................................................................ 23 

Workshops ............................................................................................................................ 23 

Tabletop Exercises................................................................................................................ 24 

Games ................................................................................................................................... 25 

Operations-Based Exercises...................................................................................................... 26 

Drills ..................................................................................................................................... 26 

Functional Exercises............................................................................................................. 26 

Full-Scale Exercises.............................................................................................................. 27 

Chapter 4 – Exercise Program Management and Planning Process .....29

Exercise Program Management ................................................................................................ 29 

Roles and Responsibilities.................................................................................................... 29 

U.S. Department of Homeland Security, Office for Domestic Preparedness................... 29 

State Administrative Agencies.......................................................................................... 29 

Local Jurisdictions............................................................................................................ 30 

Exercise Plan Workshop........................................................................................................... 31 

Cycle, Mix, and Range of Exercises..................................................................................... 31 

Exercise Data Reporting ....................................................................................................... 32 

Exercise Planning Process........................................................................................................ 32 

Foundation ............................................................................................................................ 32 

Exercise Planning Timelines............................................................................................. 32 

Exercise Planning Team ................................................................................................... 32 

Exercise Planning Conferences......................................................................................... 33 

Design and Development...................................................................................................... 33 

Objectives ......................................................................................................................... 33 

Scenario............................................................................................................................. 33

Documentation.................................................................................................................. 34 

Policies.............................................................................................................................. 35 

Exercise Conduct ...................................................................................................................... 35 

Setup ..................................................................................................................................... 35 

Presentations/Briefings......................................................................................................... 35 

Facilitation/Control/Evaluation............................................................................................. 36 

Players................................................................................................................................... 36 

Actors/Simulators ................................................................................................................. 36 

Evaluation ................................................................................................................................. 36 

Debrief/Hot Wash ................................................................................................................. 37 

After Action Analysis and Report......................................................................................... 37 

Improvement Planning.............................................................................................................. 37 

Improvement Plan................................................................................................................. 38 

Improvement Tracking and Planning.................................................................................... 38 

Notes ......................................................................................................39

Appendix A – Other Major DHS Exercise Programs ............................A–1

Appendix B – Acronyms .......................................................................B–1

iv
Introduction 

We will strive to create a fully integrated national emergency response system that is 

adaptable enough to deal with any terrorist attack, no matter how unlikely or 

catastrophic . . . . Our Federal, State, and local governments would ensure that all 

response personnel and organizations—including the law enforcement, military, 

emergency response, healthcare, public works, and environmental communities—are 

properly equipped, trained, and exercised to respond to all terrorist threats and 

attacks in the United States. 

 — National Strategy for Homeland Security, July 2002 

The U.S. Department of Homeland Security (DHS), Office for Domestic Preparedness (ODP), is 

implementing the Homeland Security Exercise and Evaluation Program (HSEEP) to enhance and 

assess terrorism prevention, response, and recovery capabilities at the Federal, State, and local 

levels. HSEEP is a threat- and performance-based exercise program that provides doctrine and 

policy for planning, conducting, and evaluating exercises. 

The above reference reflects current direction related to exercise programs and requirements 

derived from the National Strategy for Homeland Security, the Homeland Security Act of 2002, 

Homeland Security Presidential Directives, and other related documents. The National Strategy 

directs DHS to develop a National Training and Evaluation System and establish a National 

Exercise Program (NEP). HSEEP, as defined by the supporting doctrine in this document, is an 

essential element of this national program. Because HSEEP is a part of a larger program to 

enhance the capacity of State and local governments to prevent and respond to terrorist attacks, it 

is important to understand both the scope of the entire program and HSEEP’s role. 

DHS/ODP achieves its mission to develop and implement a national program to enhance the 

capacity of State and local governments to prevent and respond to terrorism through a fully 

integrated program of assistance to State and local homeland security professionals. This 

program includes funds to purchase specialized equipment, develop robust training programs, 

obtain technical assistance, and plan and conduct exercises. In addition, DHS/ODP designs and 

implements national-level programs that support State and local preparedness efforts and 

facilitate coordination and cooperation among Federal, State, and local response agencies. 

DHS/ODP has established NEP, which includes the Top Officials (TOPOFF) National Exercise

Series, Senior Officials Exercises (SOEs), and exercise support to National Special Security 

Events (NSSEs). Additional programs will be designed to implement DHS/ODP’s broader 

mission and address the needs of DHS’s expanded constituency groups. 

Background 

There have been several exercises of national and international prominence that demonstrate 

DHS/ODP’s commitment to enhance local, State, and national preparedness. In addition to 

several State and regional efforts, those efforts include exercises to prepare for NSSEs such as 

the Winter Olympic Games (Salt Lake City, Utah, 2002) and Super Bowl XXXVII (San Diego, 

California, 2003). DHS/ODP is also responsible for the TOPOFF series of exercises, including 

TOPOFF 2000 with epicenters in Denver, Colorado, and Portsmouth, New Hampshire, and 

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TOPOFF 2 with epicenters in Vancouver, British Columbia, Canada; Seattle, Washington; and 

Chicago, Illinois. 

At the local level, DHS/ODP sponsored the Nunn-Lugar-Domenici Domestic Preparedness 

Program (NLD-DPP), which provided training, exercises, and equipment support to enhance the 

capacity of local homeland security professionals and agencies to respond to terrorist incidents 

involving weapons of mass destruction (WMD) from 1997 until its completion in 2003. The 

U.S. Department of Defense (DoD) initiated NLD-DPP by identifying 120 of the Nation’s most 

populous cities for participation in the program, and in 2000, the President transferred program 

responsibility to DHS/ODP. Prior to the program’s transfer, DoD completed delivery of all 

program elements to 68 of the 120 cities and initiated activities in another 37 cities. 

Under NLD-DPP, DHS/ODP supported the planning and conduct of three exercises for each of 

the 52 participating communities that had not received all program elements: a chemical 

weapons tabletop exercise (TTX), a biological weapons TTX, and a chemical weapons full-scale 

exercise (FSE). These exercises allowed participants to test their knowledge and training and 

increased the overall preparedness of homeland security professionals across local jurisdictions. 

All NLD-DPP exercise activities were completed by December 2003. 

Purpose and Scope 

HSEEP is being disseminated on behalf of DHS. In an attempt to standardize the language and 

concepts that have been adopted and used by various agencies and organizations in the exercise 

planning process, all efforts should be made to ensure consistent use of the terminology and 

processes described in HSEEP. HSEEP, however, does not take the place of existing exercise 

programs, particularly those that are regulated (e.g., Chemical Stockpile Emergency 

Preparedness Program [CSEPP], Radiological Emergency Preparedness [REP] Program, and 

U.S. Coast Guard National Preparedness for Response Exercise Program [PREP]). 

Exercises that are supported by DHS/ODP grant fundingTP

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PT must be threat based and scenarios 

must be based on terrorism-related events.TP

2

PT Whereas the focus of DHS/ODP-sponsored 

exercises is on terrorism/WMD, the HSEEP series of reference volumes also can be adapted to a 

variety of scenarios and events (e.g., natural disasters, terrorism, technological calamities). The 

intent of HSEEP is to provide a common process, consistent terminology, and a program that is 

practical and flexible enough for all exercise planners, whatever their sponsoring agency or 

organization may be. 

Recognizing that HSEEP users’ range of experience with exercise design and development may 

vary widely, Volume I: Overview and Doctrine presents a standardized and straightforward 

process, adaptable to a wide range of exercise types, scenarios, and resources. 

This document provides: 

 An overview of DHS/ODP programs 

 DHS/ODP exercise and evaluation doctrine 

 A uniform approach to exercise design, development, conduct, and evaluation
It is organized as follows: 

Chapter 1: Homeland Security Program

Chapter 2: Homeland Security Exercise and Evaluation Program

Chapter 3: Exercise Types 

Chapter 4: Exercise Program Management and Planning Process 

Appendix A: Acronyms 

Appendix B: Other Major DHS Exercise Programs

For Official Use Only (FOUO)/Sensitive Information 

The information contained in this HSEEP series of documents is not considered sensitive in 

nature. However, some materials (e.g., scenario examples), particularly those in Volume IV, 

may necessitate confidential restrictions. Exercise materials that are produced in accordance 

with HSEEP guidance and are deemed sensitive should be designated as “For Official Use Only” 

(FOUO). FOUO is not a classification but it does make clear to participants that the material is 

sensitive and should be handled with care. Examples of materials that may require FOUO 

designation include the After Action Report (AAR), Improvement Plan (IP), Master Scenario 

Event List (MSEL), and scenario information. 

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Chapter 1 – Homeland Security Program 

Past experience has shown that preparedness efforts are key to providing an effective 

response to major terrorist incidents and natural disasters. Therefore, we need a 

comprehensive national system to bring together and command all necessary response 

assets quickly and effectively. We must equip, train, and exercise many different 

response units to mobilize for any emergency without warning. 

— National Strategy for Homeland Security, July 2002 

The Office for Domestic Preparedness (ODP) is the principal component of the U.S. Department 

of Homeland Security (DHS) responsible for preparing the United States for acts of terrorism. In 

carrying out its mission, DHS/ODP is the primary office that provides training, funds for the 

purchase of equipment, support for the planning and execution of exercises, technical assistance, 

and other support to all U.S. States and territories and the District of Columbia (hereafter 

referred to as “the States”TP

3

PT), tribal governments, and local jurisdictions to prevent, plan for, and 

respond to acts of terrorism. 

DHS/ODP Program Management 

DHS/ODP programs are designed to equip, train, and exercise homeland security professionals 

who may be called on to prevent or respond to disaster situations. These programs, which are 

described in this chapter, consist of a State formula grant program, direct assistance to local 

jurisdictions, and activities of regional and national scope. DHS/ODP staff members are 

dedicated to the development and delivery of the four main components of assistance available to 

State and local governments: 1) grants management and planning, 2) equipment acquisition, 3) 

training support, and 4) exercise support. 

The DHS/ODP program management function encompasses monetary assistance as well as 

support of statewide risk and needs assessments; strategy development; management of 

DHS/ODP resources in planning, equipment, training, and exercises; and Federal agency 

coordination. Each State’s preparedness program management is the responsibility of a State 

Administrative Agency (SAA) designated by the Governor. 

A DHS/ODP Preparedness Officer has been assigned to each State to serve as the primary 

contact for ODP assistance. The Preparedness Officer’s role is to: 

 Conduct a formal strategy review and assist each State in preparing and identifying the 

resources to implement a State Homeland Security Strategy 

 Review grant applications, prepare award documents, and administer grant programs 

 Assist States and designated urban areas with strategy implementation, including working 

with other Federal agencies to coordinate assistance (e.g., Homeland Defense Equipment 

Reuse [HDER] Program, which provides surplus U.S. Department of Energy radiological 

detection equipment and support to State and local homeland security agencies) 
6

 Coordinate DHS/ODP resources for equipment funding, training courses, and exercise 

programs 

Grants Management and Planning 

DHS/ODP provides State formula grant funds to assist with implementation of State Homeland 

Security Strategies. Eighty percent of funds must be obligated to local units of government, and 

all funds must be allocated in support of State and/or Urban Areas Security Initiative (UASI) 

homeland strategic goals and objectives. Additionally, funds for specific urban areas provided 

through the UASI are coordinated by the SAA. 

All funds provided to the State are awarded to an SAA. The SAA is appointed by the Governor 

to apply and administer the various DHS/ODP grant funds. The SAA in turn subawards to State 

agencies and local governments for implementation. States use State Homeland Security 

Strategies to more effectively fill the gaps between needs and existing capabilities, and to 

determine how they will allocate their funding. The funds may be used for planning, purchasing 

equipment, supporting terrorism exercises, training, and/or management and administration. 

Specific funding has been allocated for use in high-threat, high-density urban areas. The UASI 

program was developed to address the unique needs of urban areas; it will significantly enhance 

the ability of urban areas to prevent, deter, respond to, and recover from threats and incidents of 

terrorism. These cities were determined by a formula using a combination of current threat 

estimates, critical assets within an urban area, and population density. Urban areas selected for 

funding must approach the development and implementation of the UASI program regionally by 

involving core cities, core counties, contiguous jurisdictions, mutual aid partners, and State 

agencies in an Urban Area Working Group (UAWG). Funding is guided by UASI homeland 

security strategies drafted by the UAWGs. 

DHS/ODP provides funding to a variety of grant programs, some of which are tailored to 

specific initiatives as indicated above. For more information on grant programs administered by 

DHS/ODP, go to http://www.ojp.usdoj.gov/fundopps.htm. 

State Homeland Security Strategy 

To implement a program that addresses State and local needs, States are required to conduct 

vulnerability, risk, and needs assessments and to develop a State Homeland Security Strategy. 

The assessments are conducted at the State and local levels using an Assessment and Strategy 

Development Toolkit developed by DHS/ODP in cooperation with the Federal Bureau of 

Investigation (FBI) and the Centers for Disease Control and Prevention (CDC), and are used to 

guide the development of State Homeland Security Strategies by the State and local agencies 

responsible for responding to a terrorism incident. The assessment is prepared by the State’s 

planning team; it outlines the State’s goals for enhancing prevention, response, and recovery 

capabilities, and lists specific objectives and implementation steps for the use of planning, 

training, equipment, and exercise resources in attaining these objectives. The enhanced 

assessment tool includes an agricultural vulnerability assessment process developed in 

conjunction with the U.S. Department of Agriculture (USDA). 

Many States have adopted a regional approach to the distribution and sharing of resources. 

Numerous mutual aid agreements and emergency management assistance compacts have been 
7

executed, and coordination and cooperation have been enhanced among homeland security 

professionals at different levels of government and across disciplines. Strategy analysis has also 

provided DHS/ODP with a comprehensive picture of planning, equipment, training, exercise, 

and technical assistance needs across the Nation. 

Scheduling 

The DHS/ODP Centralized Scheduling and Information Desk (CSID) is a comprehensive 

coordination, management, information, and scheduling tool developed by DHS/ODP for 

homeland security preparedness activities. CSID is a “one-stop shop” for information on 

homeland security preparedness events for the Federal, State, and local communities. In 

addition, CSID schedules DHS/ODP training for the emergency responder community and 

maintains interagency exercise schedules. CSID helps Federal agencies coordinate, consolidate, 

and monitor Federal homeland security terrorism preparedness events in the United States. 

CSID provides custom reports on a multitude of homeland security events to identified Federal, 

State, local, and private partners. CSID also creates informational reports (including 

comprehensive city and State reports) on the status of homeland security terrorism preparedness 

training, exercises, and grants. These reports are used for auditing and archiving purposes as 

well as for congressional hearings. 

CSID comprises three components: a master calendar, a database, and an onsite call desk/help 

line. These components facilitate information sharing and allow CSID to respond to inquiries in 

a timely manner. The CSID toll-free number is (800) 368–6498. The onsite call desk is staffed 

weekdays from 8 a.m. to 7 p.m., eastern time. On weekends, holidays, and after business hours, 

callers can leave a voicemail message. CSID support is also accessible via e-mail to 

askcsd@ojp.usdoj.gov. 

Technical Assistance Program 

The DHS/ODP Homeland Security Preparedness Technical Assistance (TA) Program provides 

direct assistance to State and local jurisdictions to improve their ability to prevent, respond to, 

and recover from threats or acts of weapons of mass destruction (WMD) terrorism. Specifically, 

TA provides a process to help resolve a problem and/or create innovative approaches. All TA 

services are available to eligible recipients at no charge. 

TA programs in place or currently under development within DHS/ODP include: 

 Homeland Security Assessment and Strategy Technical Assistance: This program helps 

States and local jurisdictions with the assessment process, the ability to conduct assessments, 

and the development of a comprehensive homeland security strategy. 

 Domestic Preparedness Equipment Technical Assistance Program (DPETAP): DPETAP

provides equipment-specific training on WMD detection, decontamination, and personal 

protective equipment (PPE). 

 Terrorism Early Warning Group Replication: This project replicates programs that 

enhance capabilities for analyzing the strategic and operational information needed to 

respond to terrorism and protect critical infrastructure. 
8

 Interoperable Communication Technical Assistance Program (ICTAP): ICTAP 

enhances the interoperability of public safety communications with regard to WMD terrorism 

threats. 

 Port and Mass Transit Planning Technical Assistance: This program assesses the needs of 

port/mass transit agencies in preparing for and countering post-9/11 terrorist threats. 

 Rapid Assistance Team (RAT) Technical Assistance: This project deploys teams on short 

notice to support targeted projects such as identifying equipment needs or equipment 

procurement plans. 

 General Technical Assistance: This program provides specialized assistance to enhance 

State and local strategies to prevent, respond to, and recover from WMD terrorism. 

 Prevention Technical Assistance: This new initiative facilitates terrorism prevention efforts 

such as collaboration, information sharing, risk management, threat recognition, and 

intervention. 

 Plans and Planning Synchronization Technical Assistance: This program offers planning 

support for multijurisdictional terrorism response using innovative software tools. 

Equipment Acquisition 

DHS/ODP provides assistance to State and local agencies with specialized response equipment 

programs. Applicant assistance services include the following: 

 DPETAP: DPETAP is a comprehensive national technical assistance program operated in 

partnership with the U.S. Army’s Pine Bluff Arsenal. DPETAP personnel provide training 

on the use and maintenance of specialized equipment that can be procured through the 

Homeland Security Grant Program (HSGP). This training is provided onsite at no cost 

through the use of mobile training teams. 

 Prepositioned Equipment Program (PEP): PEP consists of standardized equipment pods 

that are prepositioned in selected geographic areas to allow rapid deployment to States and 

localities that are coping with a major chemical, biological, radiological, nuclear, or 

explosive (CBRNE) event. Eleven operational PEP sites will be phased in by the end of 

fiscal year (FY) 2004. 

 HDER: HDER gives responder agencies across the Nation access to a substantial inventory 

of radiological detection instrumentation and other equipment that is no longer needed by the 

Federal Government. This equipment is rehabilitated and provided at no cost to the recipient. 

 RAT: RAT provides telephone and onsite assistance to SAAs to identify statewide and/or 

local equipment needs, develop State and/or local equipment procurement plans, prepare 

grant application documents (e.g., program narratives, budgets), and offer other related 

support. 
9

 Equipment Purchase Assistance Program: This program provides HSGP recipients with 

access to Federal purchasing programs through agreements with the Defense Logistics 

Agency and the Marine Corps Systems Command. Advantages include streamlined 

procurement as well as guaranteed product warranties and delivery timelines. 

 Grant Assistance Program (GAP): GAP provides jurisdictions with training and technical 

assistance to expedite grant expenditures and ensure compliance with DHS/ODP grant 

programs. 

 ICTAP: ICTAP brings Space and Naval Warfare Systems Center–San Diego (SSC San 

Diego) expertise and experience to State and local jurisdictions throughout the country to 

address interoperable communications needs regarding terrorism prevention, response, and 

recovery by helping State and local agencies develop engineering solutions to achieve 

communications interoperability. 

For the most current information on equipment authorized to be purchased with DHS/ODP grant 

funds, please consult the HSGP application available at http://www.ojp.usdoj.gov/fundopps.htm. 

Training Support 

State-Level Training 

DHS/ODP offers more than 40 specialized courses ranging from basic awareness-level and 

operations training to advanced, hands-on technical and command courses. Courses are 

delivered to first responders nationwide, both onsite via mobile training teams and at state-ofthe-art training facilities. All DHS/ODP-sponsored training delivered under the State Homeland 

Security Strategy is scheduled through the SAA’s training point of contact (POC). 

In addition to accessing specialized and advanced training from DHS/ODP-sponsored training 

centers and providers, States may use grant funds to support CBRNE training activities within 

existing training academies, universities, or junior colleges, or attendance at approved CBRNE 

classes. The goal of affording States the opportunity to deliver training locally is to enhance the 

capabilities of State and local homeland security professionals through the development of State 

homeland security training programs that institutionalize awareness-level training within the 

State. 

Training Preparedness Officers are available to assist States in understanding and prioritizing 

their training resources. The role of a Training Preparedness Officer is to: 

 Develop new training courses and conduct periodic reviews and enhancement of existing 

courses, with input by subject matter experts and practitioners 

 Incorporate lessons learned and best practices from analysis of exercise findings into existing 

training and/or develop new courses to address gaps in training, and develop and maintain a 

compendium of homeland security lessons learned 
10

 Review State Homeland Security Strategies and, based on identified needs, allocate training 

resources to the States through the SAAs 

 Respond to requests for technical assistance from State and local agencies for help with 

conducting assessments and developing strategies, using and maintaining equipment, and 

other site-specific needs. 

For information on the full range of DHS/ODP-sponsored training or to obtain a copy of the 

DHS/ODP Weapons of Mass Destruction Training Programs Course Catalog, contact CSID at 

(800) 368–6498 or visit the DHS/ODP Web site at http://www.ojp.usdoj.gov/odp. 

Annual Training and Exercise Conference 

DHS/ODP will host an annual conference for State training and exercise POCs, DHS/ODP 

regional training and exercise staff, and DHS/ODP national training and exercise staff. 

Conferences will include Federal partner agencies that either have direct or indirect involvement 

in DHS/ODP training or exercises, or that maintain training or exercise programs of their own.

The typical agenda for the multiday event will address State and local concerns, issues, and 

accomplishments, and provide overviews and updates of DHS/ODP programs. The environment 

will foster the sharing and showcasing of best practices in training, exercises, evaluations, and 

Improvement Plans (IPs). Special events, regional and breakout sessions, and guest speakers 

will round out the conference agenda. 

Costs associated with conference attendance are allowable expenses under HSGP. 

Exercise Support 

DHS/ODP-funded exercises are supported by two programs, the National Exercise Program 

(NEP) and the Homeland Security Exercise and Evaluation Program (HSEEP). NEP trains 

national leaders and departmental and agency staff, and facilitates collaboration among partners 

at all levels of government for assigned homeland security missions. HSEEP provides the 

overall doctrine and policy according to which all DHS/ODP-funded exercises will be designed, 

developed, conducted, and evaluated. 

National Exercise Program 

The National Strategy for Homeland Security directed DHS to establish NEP. The Secretary of 

Homeland Security tasked DHS/ODP with developing this program and ensuring it serves the 

broadest community of learning. NEP is complementary to HSEEP and all NEP exercises will 

be conducted in accordance with HSEEP doctrine. NEP will serve as the Department’s primary 

vehicle for training national leaders and Department and agency staff members, and for 

promoting collaboration among partners at all levels of government for assigned homeland 

security missions. National-level exercises provide the means to conduct full-scale, full-system 

tests of collective preparedness, improve interoperability, build strong teams across all levels of 

government and the private sector, and develop/strengthen international partnerships. The 

program also incorporates experiments, test beds, and concept development initiatives to identify 

the implications of changes to homeland security strategies, plans, technologies, policies, and 

procedures. 
11

Exercises designated as national will be managed at the national level to effectively and 

efficiently use the limited resources and funding available for such efforts. These exercises 

generally involve national leaders and staffs, entities of two or more Federal agencies, and 

interaction with multiple regions and States. Such exercises may be congressionally mandated 

and may have particular political significance, or may be likely to receive national media 

attention. Efforts are made to include international and/or private-sector participation. The 

cornerstone of national performance-based exercises will be the Top Officials (TOPOFF) 

National Exercise Series, a biennial program that includes a functional exercise (FE) in year one 

and a full-scale exercise (FSE) in year two, with continuity provided by a series of seminars. 

The strategic goals of NEP are: 

 To meet the requirements of the National Strategy for Homeland Security, applicable 

Presidential Directives, the Homeland Security Act of 2002, and various legislative 

requirements 

 To provide periodic training and exercises for national leaders and their staffs, and the 

organizations and systems they lead 

 To provide the processes and systems for collaboration among homeland security partners at 

all levels of government by training and exercising their leaders and department and agency 

components and staffs with assigned homeland security missions 

 To achieve and sustain national preparedness by ensuring proficiency can be measured 

against consensus performance standards, and performance-based assessments can be made 

across all levels of government, against a range of hazards and threats that pose the greatest 

risk to homeland security 

 To ensure programs at all levels of government are synchronized and to administer the 

programs within the established framework of the National Incident Management System 

(NIMS) when finalized 

The establishment of NEP will include development of tools that will be useful to exercise 

planners at all levels of government. A Web-based system comprising a suite of applications and 

a centralized database will be developed to provide automated support for homeland security 

training and exercise programs. The system will provide the means to conduct collaborative 

management and scheduling and will support reuse of exercise scenarios, documentation, tools, 

and other exercise investments; it will support activities throughout the cycle of design, planning, 

preparation, execution, evaluation, reporting, and improvement actions. DHS/ODP’s goal is to 

have this system available for use during FY 2005. 

DHS/ODP also develops and manages several national-level programs that focus on the Federal 

Government’s coordination of Federal, State, and local resources to prevent and respond to 

terrorist attacks. Most of these programs involve designing and conducting exercises that are 

broad in scope and simulate a coordinated response by participants from a range of disciplines 

and multiple levels of government, including international participants. 
TOPOFF National Exercise Series

TOPOFF is a congressionally mandated, national, biennial exercise series designed to assess the 

Nation’s capability to prevent, respond, and recover from acts of terrorism. It examines 

relationships among Federal, State, and local jurisdictions in response to a challenging series of 

integrated, geographically dispersed terrorist threats and acts. Participation in TOPOFF is by 

application and subsequent invitation. DHS/ODP manages the design, planning, conduct, and 

evaluation of the exercises. This exercise series is typically codirected by DHS/ODP and other 

Federal agencies or departments. TOPOFF 2000 was codirected by DHS/ODP and the Federal 

Emergency Management Agency (FEMA). TOPOFF 2, completed in May 2003, was codirected 

by DHS/ODP and the U.S. Department of State. 

National Special Security Event Exercises 

The Federal Government designates certain events as requiring special security because of their 

high visibility and potential attractiveness to threat elements. DHS/ODP provides support for 

designing, planning, conducting, and evaluating exercises in preparation for designated National 

Special Security Events (NSSEs) such as the 2002 Winter Olympic Games in Salt Lake City. 

These exercises provide a forum to practice the coordination and response to specific challenges 

that could arise if a terrorist incident occurred during the event. 

Senior Officials Exercises 

A Senior Officials Exercise (SOE) is designed to validate policies or procedures, develop 

concepts or focus issues, or rehearse for specific events, at the policy level. (The policy level 

may include principals, deputies, senior department/agency management, or combinations 

thereof.) DHS/ODP will design and logically execute SOEs as deemed necessary by senior 

leaders at DHS, the Homeland Security Council (HSC), or other agencies. 

The focus for content development of an SOE will be the agency whose mission is primarily 

affected by the events to be exercised. The exercise scenario will be synchronized with ongoing 

events and preparedness activities and will include sufficient, appropriate preparatory events to 

align staff efforts. The SOE evaluation process will be structured around input from external 

subject matter experts. The resultant After Action Reports(AARs)/IPs will outline issues 

discovered during the exercise and recommendations for resolution. The agency responsible for 

each recommendation will provide periodic status updates on issue progress to HSC, the 

Homeland Security Deputies Committee, and the DHS Secretary’s Office for input and approval. 

Annual Evaluated Exercise/Exercise Credit 

The National Strategy for Homeland Security delineates a requirement for conducting annual 

exercises: The Department [of Homeland Security] would [will] establish a national exercise 

program designed to educate and evaluate civilian response personnel at all levels of 

government. It would require individuals and government bodies to complete successfully at 

least one exercise every year. The Department would [will] use these exercises to measure 

performance and allocate future resources.” 

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13

In accordance with this national strategy, NEP will require each State to perform an annual 

evaluated terrorism exercise, which may be conducted as either a local, regional, State, or 

multijurisdictional exercise. In the future, the program will identify the performance measures to 

be evaluated. 

Once operational, NEP will provide stipulations for exercise credit for certain prevention, 

response, and recovery actions during real-world incidents that fulfill the criteria of the 

appropriate performance measures. This will also include results from non-terrorism exercises. 

This requirement will be effective beginning in FY 2006 and further guidelines will be provided 

at that time. Until the requirement takes effect, it is recommended that States conduct at least 

one annual full-scale evaluated terrorism exercise. 

State and Local Exercises 

State and local agencies and responders are at the core of preparedness efforts. DHS/ODP is one 

of several Federal agencies that make preparedness resources available to States and local 

jurisdictions. These resources include assistance with conducting counterterrorism exercises, 

which may range in scope from single-agency efforts to multijurisdictional conglomerations to 

the inclusion of Federal partners. 

Exercises funded by DHS/ODP (possibly through HSGP or UASI) must be conducted in 

accordance with the HSEEP doctrine described in chapter 2 of this manual. To ensure 

accordance with HSEEP, a DHS/ODP Exercise Manager is assigned to work with each State and 

its jurisdictions. TAs the HSGP grant application states, “State and local units of government 

should consider their DHS/ODP Exercise Manager as their point of contact for questions and 

concerns regarding implementation of HSEEP.” 

The role of the DHS/ODP Exercise Manager is to: 

 Coordinate exercise activities for States and jurisdictions 

 Review State Homeland Security Strategies and coordinate with DHS/ODP Preparedness 

Officers to allocate resources and identify needs based on each strategy 

 Work in partnership with the State to conduct an Exercise Plan Workshop (EPW) designed to 

review and update the current Exercise Plan and schedule 

 Assist each State with the development of a Multiyear Exercise PlanTP

4

PT that defines exercise 

goals, establishes a cycle of exercises, and sets priorities for conducting exercises within the 

State 

 Help each State implement a State Homeland Security Exercise and Evaluation Program 

(SHSEEP) 

 Assist States and local jurisdictions with designing, developing, conducting, and evaluating 

exercises 
14

 Aid States and local jurisdictions in obtaining exercise participation from Federal 

departments and agencies 

 Coordinate and direct the delivery of direct exercise contractor support when requested and 

approved. Under the direction of DHS/ODP’s Exercise Manager, contractor teams will assist 

States and jurisdictions with the following tasks: 

o Develop homeland security exercise programs 

o Develop specific exercise objectives 

o Prepare detailed exercise planning and execution timelines 

o Coordinate and conduct exercise planning conferences 

o Develop a full range of exercise documentation for each type of exercise 

o Prepare an exercise control and evaluation methodology and assist in actual 

exercise control and evaluation 

o Prepare postexercise reports and conduct critiques 

 Design and conduct national, special event, and regional exercises and share lessons learned 

and best practices with Federal, State, and local agencies 

 Ensure accordance with HSEEP doctrine and policy by attending planning conferences, 

reviewing exercise documentation, and observing exercises 
15

Chapter 2 – Homeland Security Exercise and 

Evaluation Program 

The growing threat of terrorist attacks on American soil, including the potential use of 

weapons of mass destruction [WMD], is placing great strains on our Nation’s system 

for training its emergency response personnel. The U.S. Department of Homeland 

Security will...launch a consolidated and expanded training and evaluation system to 

meet the increasing demand. This system would be predicated on a four-phased 

approach: requirements, plans, training (and exercises), and assessments (comprising 

of evaluations and Improvement Plans [IPs]). 

— National Strategy for Homeland Security, July 2002 

Definition 

The Homeland Security Exercise and Evaluation Program (HSEEP) consists of both doctrine and 

policy for designing, developing, conducting, and evaluating exercises. HSEEP is a threat- and 

performance-based exercise program that includes a cycle, mix, and range of exercise activities 

of varying degrees of complexity and interaction. HSEEP is also a program of financial and 

direct support designed to assist State and local governments with the development and 

implementation of a State exercise and evaluation program to assess and enhance domestic 

preparedness. 

Exercises are an instrument to train for and practice prevention, vulnerability reduction, 

response, and recovery capabilities in a risk-free environment. They also can be used to assess 

and improve performance. Exercises are also an excellent way to demonstrate community 

resolve to prepare for disastrous events. The U.S. Department of Homeland Security, Office for 

Domestic Preparedness (DHS/ODP), has a goal of helping jurisdictions gain an objective 

assessment of their capacity to prevent or respond to, and recover from, a disaster so that 

jurisdictions can make modifications or improvements prior to the occurrence of a real incident. 

Well-designed and -executed exercises are the most effective means of: 

 Testing and validating policies, plans, procedures, training, equipment, and interagency 

agreements 

 Clarifying and training personnel in roles and responsibilities 

 Improving interagency coordination and communications 

 Identifying gaps in resources 

 Improving individual performance 

 Identifying opportunities for improvement
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Doctrine 

All entities conducting exercises using DHS/ODP funds are subject to the following HSEEP 

requirements:

 States will conduct an annual Exercise Plan Workshop (EPW) to examine the progress and 

effectiveness of the current exercise strategy and program. 

 A Multiyear Exercise Plan will be produced from the EPW and submitted to DHS/ODP. 

This Exercise Plan will include guidelines for the establishment of a State Homeland 

Security Exercise and Evaluation Program (SHSEEP) and a multiyear exercise schedule (to 

be updated annually). 

 The Exercise Plan will employ a cycle of activity that includes exercises of increasing levels 

of complexity. 

 The scenarios used in exercises will be terrorism relatedTP

5

PT and threat based. 

 All tabletop exercises (TTXs), drills, functional exercises (FEs), and full-scale exercises 

(FSEs) will be evaluated and performance based. 

 An After Action Report (AAR) will be prepared and submitted to DHS/ODP following every 

TTX, drill, FE, and FSE. 

 An IP will be developed, submitted to DHS/ODP, and implemented to address findings and 

recommendations identified in the AAR. 

 Periodic exercise scheduling and improvement implementation data will be reported to 

DHS/ODP. 

The remainder of this volume, as well as HSEEP Volumes II and III, contains further 

explanation of these requirements and also guidance and recommendations for designing, 

developing, conducting, and evaluating exercises. All jurisdictions that implement an exercise 

with grant funds and/or direct support from DHS/ODP should use the processes outlined in 

HSEEP to enhance and standardize their existing exercise programs. 

State Homeland Security Exercise and Evaluation Program 

The Multiyear Exercise Plan submitted to DHS/ODP includes guidelines for establishing a 

SHSEEP. The plan will address the State and local exercise requirements (consistent with the 

State Homeland Security Strategy) and should define exercise goals, establish a cycle of 

exercises, and set priorities for conducting exercises within the State. 

Using this plan as a foundation, the State should build its own exercise and evaluation program 

by incorporating requirements and guidance consistent with the national HSEEP model. For a 

State program to be consistent with HSEEP, each State should ensure that the exercise program 

addresses the following elements: 
17

 Obtains grants and funding (annually) 

 Identifies roles and responsibilities (e.g., hire full- or part-time staff or consultants for 

exercise program development and management) 

 Develops and maintains the State’s Multiyear Exercise Plan and schedule/timeline 

 Develops the State’s own means of monitoring exercises conducted throughout the State’s 

jurisdictions and ensures compliance with HSEEP requirements 

 Designates an agency or organization that will serve as a clearinghouse for all exercises 

occurring throughout the State 

 Establishes a means of monitoring and compliance to ensure exercise program requirements 

are being met (e.g., submitting receipts, applying for grants, submitting documentation, 

scheduling planning conferences and exercise conduct) 

 Conducts annual activities to review the program, ensures that the State’s objectives are 

being met, revises or updates existing Multiyear Exercise Plan(s), and conducts EPWs 

 Meets Federal reporting requirements 

 Meets internal State reporting and briefing requirements 

State Strategies 

The State Homeland Security Strategy development process begins in the assessment phase 

when States and jurisdictions conduct vulnerability, risk, and needs assessments. Using the 

knowledge gained in this phase, the State proceeds to develop plans and procedures and analyze 

planning, equipment, training, and exercise requirements. The results of this analysis are used to 

form the State Homeland Security Strategy. 

After the strategy is distributed and all agencies have familiarized themselves with it, local 

communities work with the State to conduct EPWs. An EPW translates strategic goals and 

priorities into specific objectives and exercise activities and develops a multiyear timeline for 

conducting realistic and threat-based scenario exercises. These exercises are evaluated to 

identify and validate State and community preparedness. AARs are written after each exercise to 

document results and are then used to develop a jurisdiction’s IP, which uses lessons learned and 

best practices to revise and update the State Homeland Security Strategy. Lessons learned also 

may dictate immediate special attention to areas with deficiencies. 

Threat-Based Scenarios 

Attacks by international and domestic terrorists have demonstrated that no location is immune to 

attack. All exercises conducted with Homeland Security Grant Program (HSGP) or Urban Areas 

Security Initiative (UASI) grant funds must focus on terrorism threats. The exercise scenario 

should be appropriate to national threat conditions and the assessed threat for the jurisdiction(s) 

involved in the exercise. This will enhance the exercise’s training value and provide an 
18

opportunity to assess the jurisdiction’s vulnerability in light of likely prevention or response 

actions. Exercise planners should review the jurisdiction’s threat assessment (conducted as part 

of the State strategy development process) and develop an exercise scenario that is credible in 

terms of the means of attack, the target, and the likely opposing force. To assist State and local 

agencies, an interagency team of subject matter experts has developed a suite of common 

scenarios that provide the necessary conditions and stimuli to perform essential tasks and cover a 

range of threat probabilities. These scenarios will be validated by intelligence and law 

enforcement and will be periodically reviewed and updated. Once finalized, these scenarios will 

be provided to State and local agencies as a component of strategic planning guidance that will 

help with operational planning, training, exercises, evaluations, and assessments. 

Performance of Plans, Policies, and Procedures 

Exercises conducted under HSEEP should be performance-based and require demonstration, 

practical application, and evaluation of proficiency for the discrete, essential tasks that enable a 

homeland security mission or function to be successfully accomplished. Discussion-based 

exercises such as seminars, workshops, TTXs, and games provide a forum for reviewing the 

adequacy of plans, policies, functions, and interagency/interjurisdictional agreements, whereas 

operations-based exercises such as drills, FEs, and FSEs are designed to validate personnel and 

equipment performance in achieving critical tasks and homeland security missions. 

The exercise evaluation methodology, defined in HSEEP Volume II: Exercise Evaluation and 

Improvement, is designed to analyze performance at three levels, depending on the complexity of 

the exercise. For discussion-based exercises, the evaluation focuses on the adequacy of and 

familiarity with the jurisdiction’s plans, policies, procedures, resources, and 

interagency/interjurisdictional relationships. For operations-based exercises, evaluators observe 

and assess actual performance in preventing or responding to a simulated terrorist attack. 

Prevention Exercises 

The importance of prevention is made clear in the executive summary of the National Strategy 

for Homeland Security. The strategic objectives of homeland security in order of priority are to: 

 

 Prevent terrorist attacks within the United States 

 Reduce U.S. vulnerability to terrorism 

 Minimize damage and facilitate recovery from attacks that may occur 

State and local jurisdictions should try to incorporate as many preventive exercises into their 

programs as possible. These exercises can be either discussion- or operations-based and may 

focus on issues pertaining to: 

 Information and intelligence sharing 

 Credible threats 

 Surveillance 

 Opposing/adversary force or “red team” activity (described below) 
The National Strategy for Homeland Security identifies a requirement to employ red team

techniques to practice detecting terrorist activity before it manifests itself in an attack, with a 

goal of allowing proper preemptive, preventive, and protective actions to be taken. The red team

mission is to apply knowledge of terrorists’ motivations, organization, targeting, tactics, 

techniques, procedures, weapons, and equipment and assess Federal, State, and local 

governments’ ability to deter, detect, and defend against, and defeat terrorist attacks. 

DHS/ODP employs strategic and tactical red team techniques in the National Exercise Program

(NEP) and has targeted resources available to provide such an enhancement to specific State and 

local exercises conducted in accordance with HSEEP. States will be able to request an 

opportunity to employ a red team and/or universal adversary force in their State and local 

exercises. Such requests will be considered and granted based both on the availability of

resources and scheduling and on the State’s level of demonstrated exercise competency. 

Response and Recovery Exercises 

Although the prevention and deterrence of attacks are paramount, it remains probable that 

incidents will occur. Therefore, exercises should also include the response and recovery aspects 

of an event in addition to prevention. Response and recovery issues in an exercise may include 

notification, communication, command and control, remediation, return to normalcy, and 

continuity of government and business. 

 

Interagency/Interjurisdictional Exercises 

Because the prevention of and/or response to a crisis situation will require resources and 

expertise from various agencies and disciplines throughout the Federal, State, and local 

government structures, an exercise should assess the capacity of multiple organizations and the 

effectiveness of interagency cooperation and interoperable communication. The organizations 

involved in an exercise may be public or private, from any level of government, and from

disciplines ranging from public health to fire, as long as they reflect the type of exercise and 

scenario. Jurisdictions that would rely heavily on mutual aid assistance for response should 

include participants from the agencies with which they have agreements and compacts. It is also 

beneficial to conduct regional exercises that include participants from multiple agencies and 

jurisdictions, because such a scenario would likely reflect actual response to an event. 

Private-Sector Coordination 

Exercise scenarios mimic actual response to the greatest extent possible; therefore, local and 

State government agencies are encouraged to incorporate the private sector. The range of 

terrorist targets is not limited to civilian populations or government facilities. The private sector 

can be a target of terrorism because it is often viewed as a symbol of American economic, social, 

and military power or as an extension of the U.S. government. The private sector includes 

commercial, business, and industrial facilities, tourist attractions, and special events. It also 

includes the personnel, source material (if a production entity), and support systems (for 

example, transportation capabilities) of such entities. 

Private-sector preparedness and response activities often mirror those of the surrounding 

communities. Recognizing this need, DHS/ODP supports States’ efforts to incorporate major 

community businesses and facilities into their SHSEEPs. For example, in one realistic scenario, 

19
a California community held its chemical FSE at a major industrial plant and used plant 

employees as victim actors. Another example of private-sector involvement is the DHS/ODP 

initiative to exercise the evacuation plans of Major League Baseball stadiums. 

Private response capabilities, such as fire brigades, security forces, and medical staff, can 

augment local response capabilities and remove a significant burden from limited local resources 

during critical situations. In a real incident, these resources and activities should be available for 

mutual aid, and they should be exercised as such. Other examples of exercise contributions 

available from private industry include railroad lines, factory and other facilities, personal 

protective equipment (PPE), hazardous materials (HazMat) control and other content expertise, 

and personnel to serve as controllers, evaluators, or logistical support. Furthermore, in a real 

incident, private industry would be included in the Incident Command System (ICS) structure in 

the form of public works, hospitals, and other response entities. 

Regional/International Exercises 

Participation in regional and international exercises is a crucial aspect of emergency 

preparedness for many communities across the country. From Seattle and Vancouver to San 

Diego and Tijuana, communities need to plan with their neighbors for emergencies that cross 

State or national borders. Terrorist incidents do not stop at political borders, and neither should 

preparedness activities. Interstate and international resources should be incorporated into plans 

and used as appropriate. In some locales, such as in the Pacific Islands, international assistance 

is the closest available mutual aid. Communities should familiarize themselves with the 

resources available from potential regional and international partners and share their response 

concepts and standard/emergency operating procedures (SOPs/EOPs) with these groups. 

DHS/ODP supports regional planning and exercise efforts and has conducted exercises with 

numerous international partners. The Urban Areas Security Initiative (UASI) grant program

requires the formation of an Urban Area Working Group (UAWG) to collaborate on assessment 

and planning for urban areas and their surrounding communities and stakeholders; thus, many 

related exercises will be conducted on the regional level. During the Top Officials (TOPOFF 2) 

National Exercise Series, Canadian agencies participated as if real-world incidents had occurred 

in Seattle or Chicago. Plans to involve international partners in future national exercises and 

bordering State-sponsored exercises are currently in review. 

Resources To Implement HSEEP 

DHS/ODP provides a range of assistance under HSEEP to aid State and local jurisdictions with 

implementation of effective exercises. Types of assistance are described below. 

Grant Funds 

States receive an annual allocation of grant funds from DHS/ODP and may use a portion of the 

funds to enhance the prevention and response capabilities of States and local jurisdictions 

through terrorism exercises. These grant funds, which must be used in accordance with the State 

Homeland Security Strategy, are described in more detail in chapter 1. For information on all 

DHS/ODP-sponsored funding, please visit http://www.ojp.usdoj.gov/fundopps.htm. 

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21

Exercise Funding 

As part of their formula grant awards, States and urban areas receive exercise funding from 

DHS/ODP. These funds may be used for the following purposes: 

 Expenses related to convening a statewide EPW 

 Hiring of full- or part-time staff or contractors/consultants to support exercise activities 

 Overtime for first responder/exercise management personnel involved in planning and 

conducting exercises 

 Travel associated with planning and conducting exercises 

 Supplies consumed during the course of planning and conducting exercises 

 Costs related to HSEEP implementation, including reporting of scheduled exercises and 

tracking and reporting of AARs and IPs from exercises 

 Other costs related to planning and conducting exercise activities 

Direct Exercise Support 

DHS/ODP has engaged multiple contractors with significant experience in designing, 

conducting, and evaluating exercises to provide support to States and local jurisdictions in 

accordance with State Homeland Security Strategies and HSEEP. Contract support is available 

to help States develop a Multiyear Exercise Plan and build or enhance the capacity of States and 

local jurisdictions to design, develop, conduct, and evaluate effective exercises. If a State 

decides to hire a private contractor, the State must ensure the contractor will follow HSEEP 

requirements and guidance. 

Secure Web-Based Portal 

All HSEEP reference manuals and materials are available through DHS/ODP’s secure Webbased portal, which provides an environment in which sensitive documents and materials can be 

posted and continually updated or enhanced. The exercise portion of the portal contains a library 

of sample exercise materials (e.g., HSEEP Volume IV) as well as the text of HSEEP Volumes I, 

II, and III. The portal also includes an exercise scheduler and reporting system that allows States 

and local jurisdictions to schedule exercises, submit AAR/IPs, and report exercise data. 

Access to the portal will be granted through the State Administrative Agency (SAA) or its 

designated exercise or training coordinators. A jurisdiction that would like access to the portal 

should contact its respective State agency, which will send out invitations through e-mail. Once 

invited, the user will need to register on the following Web site: https://odp.esportals.com. 

Further information on the secure portal and HSEEP Volume IV can be found in appendix B of 

HSEEP Volume III. 
Exercise Toolkit 

DHS/ODP is developing an Exercise Planning Toolkit that will provide exercise planners with 

an interactive computer-based tool to help design, develop, and execute viable and effective 

exercises. The toolkit will help standardize the methods used to plan and conduct exercises and 

evaluate results. 

Lessons Learned and Best Practices 

Exercises and the resultant AARs/IPs not only provide lessons for exercise participants, they also 

offer a valuable source of information that can be analyzed at the national level to identify 

lessons learned and best practices that can be shared to enhance preparedness across the country. 

Lessons learned should encompass knowledge and experience (positive and negative) derived 

from observations and historical study of actual operations, training, and exercises. Best 

practices should encompass peer-validated techniques, procedures, and solutions that work and 

are solidly grounded in actual experience in operations, training, and exercises. Exercise AARs 

should identify lessons and highlight exemplary practices, and should be submitted to DHS/ODP 

for inclusion in the lessons learned/best practices Web portal (www.llis.gov), which will serve as 

a national network for generating, validating, and disseminating lessons learned and best 

practices. 

With support and oversight from DHS/ODP, the National Memorial Institute for the Prevention

of Terrorism (MIPT) in Oklahoma City has developed this secure Web-based network of peervalidated best practices and lessons learned. This network, known as Lessons Learned 

Information Sharing (LLIS), is designed to help emergency responders, homeland security 

officials, and healthcare professionals learn from each other and share information. LLIS offers 

access to a wide variety of original best practices and lessons learned, developed in consultation 

with frontline emergency responders and validated by emergency response and homeland 

security professionals. In addition to providing original best practices and lessons learned, the 

system also serves as a clearinghouse for domestic preparedness documents, exercises, events, 

and news. 

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Chapter 3 – Exercise Types 

This chapter describes the types of exercises sponsored and approved by the U.S. Department of 

Homeland Security, Office for Domestic Preparedness (DHS/ODP). The type of exercise that 

best meets a jurisdiction’s requirements is identified through analysis of the stated exercise 

purpose, proposed objectives, experience, operations, historical precedence, and recommended 

levels of participation. 

A specified planning process from concept development through conduct and evaluation has 

been defined for each type of exercise. HSEEP Volume III: Exercise Program Management and 

Exercise Planning Process describes the key meetings and exercise documents generated during 

the exercise planning cycle. Materials described in the HSEEP series are provided in Volume IV: 

Sample Exercise Documents and Formats. 

Discussion-Based Exercises 

Discussion-based exercises are normally used as a starting point in the building block approach 

to the cycle, mix, and range of exercises. Discussion-based exercises include seminars, 

workshops, tabletop exercises (TTXs), and games. These types of exercises typically highlight 

existing plans, policies, mutual aid agreements, and procedures. Thus, they are exceptional tools 

for familiarizing agencies and personnel with current or expected jurisdictional capabilities. 

Discussion-based exercises typically focus on strategic, policy-oriented issues, and operationsbased exercises tend to focus more on tactical response-related issues. Facilitators and/or 

presenters usually lead the discussion, keeping participants on track while meeting the objectives 

of the exercise.

Seminars 

Seminars are generally employed to orient participants to, or provide an overview of, authorities, 

strategies, plans, policies, procedures, protocols, response resources, or concepts and ideas. 

Seminars provide a good starting point for jurisdictions that are developing or making major 

changes to their plans and procedures. They offer the following attributes: 

 Low-stress environment employing a number of instruction techniques such as lectures, 

multimedia presentations, panel discussions, case study discussions, expert testimony, and 

decision support tools 

 Informal discussions led by a seminar leader 

 Lack of time constraints caused by real-time portrayal of events 

 Effective with both small and large groups 

Workshops 

Workshops represent the second tier of exercises in the HSEEP building block approach. 

Although similar to seminars, workshops differ in two important aspects: participant interaction 
24

is increased, and the focus is on achieving or building a product (such as a plan or a policy). 

Workshops provide an ideal forum for: 

 Collecting or sharing information 

 Obtaining new or different perspectives 

 Testing new ideas, processes, or procedures 

 Training groups in coordinated activities 

 Problemsolving complex issues 

 Obtaining consensus 

 Team building 

In conjunction with exercise development, workshops are most useful in achieving specific 

aspects of exercise design such as: 

 Determining program or exercise objectives 

 Developing exercise scenario and key events listings 

 Determining evaluation elements and standards of performance 

A workshop may be used to produce new standard/emergency operating procedures 

(SOPs/EOPs), mutual aid agreements, Multiyear Exercise Plans, and Improvement Plans (IPs). 

To be effective, workshops must be highly focused on a specific issue and the desired outcome 

or goal must be clearly defined. 

Potential relevant topics and goals are numerous, but all workshops share the following common 

attributes: 

 Low-stress environment 

 No-fault forum 

 Information conveyed employing different instructional techniques 

 Facilitated, working breakout sessions 

 Plenum discussions led by a workshop leader 

 Goals oriented toward an identifiable product 

 Lack of time constraint from real-time portrayal of events 

 Effective with both small and large groups 

Tabletop Exercises 

TTXs involve senior staff, elected or appointed officials, or other key personnel in an informal 

setting, discussing simulated situations. This type of exercise is intended to stimulate discussion 

of various issues regarding a hypothetical situation. It can be used to assess plans, policies, and 

procedures or to assess types of systems needed to guide the prevention of, response to, and 

recovery from a defined event. TTXs typically are aimed at facilitating understanding of 

concepts, identification of strengths and shortfalls, and/or achieving a change in attitude. 

Participants are encouraged to discuss issues in depth and develop decisions through slow-paced 

problemsolving rather than the rapid, spontaneous decisionmaking that occurs under actual or 

simulated emergency conditions. In contrast to the scale and cost of operations-based exercises 

and games, TTXs can be a cost-effective tool when used in conjunction with more complex 
25

exercises. The effectiveness of a TTX is derived from the energetic involvement of participants 

and their assessment of recommended revisions to current policies, procedures, and plans. 

TTX methods are divided into two categories: basic and advanced. In a basic TTX, the scene set 

by the scenario materials remains constant. It describes an event or emergency incident and 

brings discussion participants up to the simulated present time. Players apply their knowledge 

and skills to a list of problems presented by the leader/moderator, problems are discussed as a 

group, and resolution is generally agreed on and summarized by the leader. In an advanced 

TTX, play revolves around delivery of prescripted messages to players that alter the original 

scenario. The exercise controller (moderator) usually introduces problems one at a time in the 

form of a written message, simulated telephone call, videotape, or other means. Participants 

discuss the issues raised by the problem, using appropriate plans and procedures. TTX attributes 

may include: 

 Practicing group problemsolving 

 Familiarizing senior officials with a situation 

 Conducting a specific case study 

 Examining personnel contingencies 

 Testing group message interpretation 

 Participating in information sharing 

 Assessing interagency coordination 

 Achieving limited or specific objectives 

Games 

A game is a simulation of operations that often involves two or more teams, usually in a 

competitive environment, using rules, data, and procedures designed to depict an actual or 

assumed real-life situation. It does not involve the use of actual resources and the sequence of 

events affects, and is in turn affected by, the decisions made by the players. 

Players are commonly presented with scenarios and asked to perform a task associated with the 

scenario episode. As each episode moves to the next level of detail or complexity, it takes into 

account players’ earlier decisions; thus, the decisions made by participants determine the flow of 

the game. The goal is to explore decisionmaking processes and the consequences of those 

decisions. In a game, the same situation can be examined from various perspectives by changing 

the variables and parameters that guide player actions. Large-scale games can be 

multijurisdictional and include active participation from Federal, State, and local governments. 

Games stress the importance of planners’ and players’ understanding and comprehension of 

interrelated processes. 

With the evolving complexity and sophistication of current simulations, opportunities to provide 

enhanced realism for game participants have increased. Computer-generated scenarios and 

simulations can provide a more realistic and time-sensitive method of introducing situations for 

analysis. Planner decisions can be input and models run to show the effect of decisions made 

during a game. Distributed games (available via the Internet) offer many additional benefits 

such as saving participants’ time and travel expenses, offering more frequent training 

opportunities, and taking less time away from primary functions. They also provide a 
26

collaborative environment that reflects realistic occurrences. Games are excellent vehicles for 

the following: 

 Gaining policy or process consensus 

 Conducting “what-if” analyses of existing plans 

 Developing new plans 

DHS/ODP conducts ongoing analysis of commercial and government-sector models, games, and 

simulations to identify those of value for exercise use. Although models, games, and simulations 

are not a substitute for full-scale exercises (FSEs), they are an increasingly more sophisticated 

and useful component of exercise programs. DHS/ODP has issued a list of government and 

commercially developed models, games, and simulations that have been evaluated against its 

training and exercise requirements for the enhancement of homeland security preparedness. 

These reports can be found at http://www.ojp.usdoj.gov/odp/exercises.htm. Please consult these 

reports before deciding which games, models or simulations to employ in the State’s exercise 

program. 

Operations-Based Exercises 

Operations-based exercises represent the next iteration of the exercise cycle; they are used to 

validate the plans, policies, agreements, and procedures solidified in discussion-based exercises. 

Operations-based exercises include drills, functional exercises (FEs), and FSEs. They can clarify 

roles and responsibilities, identify gaps in resources needed to implement plans and procedures, 

and improve individual and team performance. Operations-based exercises are characterized by 

actual response, mobilization of apparatus and resources, and commitment of personnel, usually 

over an extended period of time. 

Drills 

A drill is a coordinated, supervised activity usually employed to test a single specific operation 

or function in a single agency. Drills are commonly used to provide training on new equipment, 

develop or test new policies or procedures, or practice and maintain current skills. Typical 

attributes include: 

 A narrow focus, measured against established standards 

 Instant feedback 

 Realistic environment 

 Performance in isolation 

Functional Exercises 

The FE, also known as a command post exercise (CPX), is designed to test and evaluate 

individual capabilities, multiple functions or activities within a function, or interdependent 

groups of functions. FEs are generally focused on exercising the plans, policies, procedures, and 

staffs of the direction and control nodes of Incident Command (IC) and Unified Command (UC). 

Generally, events are projected through an exercise scenario with event updates that drive 

activity at the management level. Movement of personnel and equipment is simulated. 

The objective of the FE is to execute specific plans and procedures and apply established 

policies, plans, and procedures under crisis conditions, within or by a particular function team(s). 
27

An FE simulates the reality of operations in a functional area by presenting complex and realistic 

problems that require rapid and effective responses by trained personnel in a highly stressful 

environment. Attributes of an FE include: 

 Evaluating functions 

 Evaluating Emergency Operations Centers (EOCs), headquarters, and staff 

 Reinforcing established policies and procedures 

 Measuring resource adequacy 

 Examining interjurisdictional relationships 

Full-Scale Exercises 

The FSE is the most complex step in the exercise cycle. FSEs are multiagency, 

multijurisdictional exercises that test many facets of emergency response and recovery. They 

include many first responders operating under the Incident Command System (ICS) or Unified 

Command System (UCS) to effectively and efficiently respond to, and recover from, an incident. 

An FSE focuses on implementing and analyzing the plans, policies, and procedures developed in 

discussion-based exercises and honed in previous, smaller, operations-based exercises. The 

events are projected through a scripted exercise scenario with built-in flexibility to allow updates 

to drive activity. It is conducted in a real-time, stressful environment that closely mirrors a real 

event. First responders and resources are mobilized and deployed to the scene where they 

conduct their actions as if a real incident had occurred (with minor exceptions). The FSE 

simulates the reality of operations in multiple functional areas by presenting complex and 

realistic problems requiring critical thinking, rapid problemsolving, and effective responses by 

trained personnel in a highly stressful environment. Other entities that are not involved in the 

exercise, but who would be involved in an actual event, should be instructed not to respond. 

An FSE provides an opportunity to execute plans, procedures, and cooperative (mutual aid) 

agreements in response to a simulated live event in a highly stressful environment. Typical FSE 

attributes include: 

 Assessing organizational and individual performance 

 Demonstrating interagency cooperation 

 Allocating resources and personnel 

 Assessing equipment capabilities 

 Activating personnel and equipment 

 Assessing interjurisdictional cooperation 

 Exercising public information systems 

 Testing communications systems and procedures 

 Analyzing memorandums of understanding (MOUs), SOPs, plans, policies, and procedures 

The level of support needed to conduct an FSE is greater than needed during other types of 

exercises. The exercise site is usually extensive with complex site logistics. Food and water 

must be supplied to participants and volunteers. Safety issues, including those surrounding the 

use of props and special effects, must be monitored. 

FSE controllers ensure that participants’ behavior remains within predefined boundaries. 

Simulation Cell (SIMCELL) controllers continuously inject scenario elements to simulate real 
events. Evaluators observe behaviors and compare them against established plans, policies, 

procedures, and standard practices (if applicable). Safety controllers ensure all activity is 

executed within a safe environment. 

28
29

Chapter 4 – Exercise Program Management and 

Planning Process 

This chapter provides a brief overview of exercise program management and the process of 

designing, developing, conducting, and evaluating exercises. Detailed guidance and further 

descriptions of many of the exercise concepts and materials addressed in this section are 

contained in HSEEP Volume II: Exercise Evaluation and Improvement and HSEEP Volume III: 

Exercise Program Management and Exercise Planning Process. Examples of many of these 

materials are contained in HSEEP Volume IV: Sample Exercise Documents and Formats. 

Exercise Program Management 

Program management functions in a cyclical way, much as exercise planning does, in that it 

starts with a plan, a budget, or a funding request; moves on to exercise execution; and finally 

completes a full cycle with improvement planning. Program management involves several 

elements including project management, budgeting, grant management, staff hiring, funding 

allocation, exercise planning, exercise conduct, reporting, improvement tracking, and 

expenditure tracking. 

Roles and Responsibilities 

State and local governments have direct responsibility for the training and exercising of their 

homeland security professionals. The U.S. Department of Homeland Security, Office for 

Domestic Preparedness (DHS/ODP) and other Federal agencies administer national-level 

programs that support training and exercise activities for agencies at all levels of government and 

their private-sector and international partners. Responsibilities for these tasks are 

complementary and require that all relevant parties collaborate to successfully administer 

exercises. The following section defines the roles and responsibilities of, and the relationships 

between, DHS/ODP and the State Administrative Agencies (SAAs) and local governments in 

implementing the Homeland Security Exercise and Evaluation Program (HSEEP). 

U.S. Department of Homeland Security, Office for Domestic Preparedness 

DHS/ODP is responsible for helping State and local governments enhance their capacity to 

prevent and respond to terrorist attacks. DHS/ODP’s major roles and responsibilities, including 

program management, grant management, equipment, training, and exercises, are outlined in 

chapter 1. 

State Administrative Agencies 

HSEEP incorporates input developed at the State level, primarily through the development of 

State Homeland Security Strategies. The SAA holding the primary responsibility within each 

State should appoint a staff member to serve as an exercise coordinator. This person will 

oversee the implementation and management of the State’s exercise program and the exercise 

design and development process. Other SAA responsibilities are to: 

 Conduct risk, vulnerability, and needs assessments of each selected jurisdiction using the 

DHS/ODP Assessment and Strategy Development Toolkit 
30

 Prepare the exercise needs portion of the State Homeland Security Strategy 

 Conduct an annual Exercise Plan Workshop (EPW), as described below 

 Submit a schedule of exercises to DHS/ODP and provide regular updates on changes to the 

plan/schedule 

 Identify and prioritize jurisdictions within the State for participation in the program and 

receipt of resources 

 Administer planning, equipment, training, and exercise grants 

 Develop and implement a Multiyear Exercise Plan 

 Develop and implement a State Homeland Security Exercise and Evaluation Program 

(SHSEEP) 

 Support the design, conduct, and evaluation of State and local exercises in accordance with 

the principles and guidance defined in the HSEEP manuals 

 Ensure that After Action Reports (AARs) and Improvement Plans (IPs) are prepared and 

submitted to DHS/ODP 

 Establish a mechanism for tracking IP implementation 

 Incorporate lessons learned and prevention and response needs identified through exercises 

into the strategy planning and evaluation process 

Local Jurisdictions 

The responsibilities of local jurisdictions identified to receive exercise support are to: 

 Coordinate preparedness activities with the SAA 

 Ensure local plans and procedures are developed and updated 

 Identify goals and objectives within the community that are aligned with the local risk, 

vulnerability, and needs assessments and the jurisdictional and State Homeland Security 

Strategies 

 Design, develop, conduct, and evaluate exercises that conform to HSEEP 

 Provide information and personnel to aid in designing, developing, conducting, and 

evaluating exercises 

 Prepare an IP that addresses the recommendations in the exercise AAR 
31

Exercise Plan Workshop 

The purpose of an EPW is to provide State and local leadership with an opportunity to review 

and update the current Multiyear Exercise Plan and schedule. HSEEP requires that States 

receiving DHS/ODP grant funds conduct an annual EPW to review program accomplishments to 

date, necessary modifications to the plan, and the exercise schedule. 

The EPW product, or the Exercise Plan, comprises four major sections: 

 Current program status (e.g., State Homeland Security Strategy, current exercise activities) 

 Program goals and objectives 

 Program exercise methodology (e.g., exercise activity cycle, building block approach) 

 Multiyear exercise timeline/schedule (2-year plans for designated urban areas, 3-year plans 

for States) 

EPWs will be held annually, preferably in the early portion of the calendar year. Appropriate 

State and local officials participating in the exercise or planning program should attend, but the 

number of attendees should remain manageable. 

The purpose of the EPW and the Exercise Plan is to coordinate all exercise activities occurring 

throughout the State, including activities sponsored by other Federal agencies. A coordinated 

and integrated HSEEP should eliminate the possibility of States and local jurisdictions 

conducting numerous exercises and putting forth duplicative efforts. DHS/ODP funds can be 

used to supplement other exercise programs. 

Cycle, Mix, and Range of Exercises 

The Multiyear Exercise Plan should define a cycle of exercise activity that employs increasing 

degrees of complexity. Linkage to the State Homeland Security Strategy and the relative risks, 

experience, and preparedness levels of the State and its various targeted jurisdictions will enable 

planners to identify the appropriate exercise type and timeline for events. The schedule for 

personnel training and equipment acquisition should also be considered in determining exercise 

priorities. An effective exercise program uses a combination of exercise types to effectively 

accomplish exercise-specific objectives and program goals. Although each exercise type can be 

executed as a single activity, greater benefits can be achieved through a building block approach 

that exposes program participants to gradually increasing exercise complexity. For example, a 

series of exercises may begin with an executive-level seminar followed by a tabletop exercise 

(TTX) to address the strategic coordination of multiple agencies and levels of government. The 

TTX is followed by a period of refining plans based on discussions and the exercise AAR/IP. 

Various agencies would then perform a series of drills with specific functions to validate each 

new plan. A final full-scale exercise (FSE) incorporates all levels of government; activation of 

State, county, and/or local Emergency Operations Centers (EOCs); and participation from 

hospitals and actor/victims. 
Exercise Data Reporting 

Reporting of data for local exercises designated to receive funding from the State begins at the 

annual EPW with submission of a final Multiyear Exercise Plan. At minimum, information 

should include jurisdiction name, exercise type, scenario, exercise date, and date of Initial 

Planning Conference (IPC). Exercise data will be reported to DHS/ODP by State and local 

jurisdictions for all exercises that use DHS/ODP funds. Every effort will be made to eliminate 

redundant data reporting by identifying reporting dates and requirements for each report. 

Exercise Planning Process 

The exercise planning process involves considerable coordination among participating agencies 

and officials. The planning process includes managing the project, convening a planning team, 

conducting planning conferences, identifying exercise design objectives, developing the scenario 

and documentation, assigning logistical tasks, and identifying the evaluation methodology. 

Foundation 

To establish a foundation for designing, developing, conducting, and evaluating an exercise, 

project management is essential and involves the following tasks: developing a project 

management timeline and establishing milestones, identifying a planning team, and scheduling 

planning conferences. 

Exercise Planning Timelines 

Timelines for workshops and seminars will generally be shorter than for a TTX whereas the 

timelines for complex or multijurisdictional FSEs could be longer than those for drills. 

Exercise Planning Team 

The exercise planning team is responsible for designing, developing, conducting, and evaluating 

all aspects of an exercise. The planning team determines exercise design objectives, tailors the 

scenario to jurisdictional needs, and develops documents used in exercise evaluation, control, 

and simulation. Planning team members also help with developing and distributing pre-exercise 

materials and conducting exercise briefings and training sessions. Due to this high level of 

involvement, planning team members are ideal selections for controller and evaluator positions

during the exercise itself. 

The exercise planning team is managed by a Lead Exercise Planner (also referred to as the 

Exercise Director, Exercise Planning Team Leader, or point of contact [POC]). The team should 

be a manageable size and include a representative from each major participating jurisdiction and 

response agency. The membership of an exercise planning team should be modified to fit the 

type or scope of an exercise. For example, an operations-based exercise may require more 

logistical coordination than a discussion-based exercise. 

A successful exercise planning team uses an Incident Command System (ICS) structure; employs 

project management principles; clearly defines roles, responsibilities, and functional area skills; 

highlights leadership and team work; follows a standardized exercise design/development 

process; and calls on the support of senior officials. 

32
33

Exercise Planning Conferences 

This section describes the types of planning conferences that have been found to be the most 

useful in exercise design and development. The scope, type (operations- or discussion-based), 

and complexity of an exercise should determine the number of meetings necessary to 

successfully conduct an exercise. Planning conferences are listed in typical chronological order. 

 

 Concept and Objectives (C&O) Meeting: Used to identify the type, scope, objectives, and 

purpose of the exercise. Typically attended by the sponsoring agency, lead exercise planner, 

and senior officials. 

• IPC: Lays the foundation for exercise development; used to gather input from the exercise 

planning team on the scope, design, objectives, and scenario variables (e.g., hazard selection, 

venue). The IPC obtains the planning team’s input on exercise location, schedule, duration, 

and other details required to develop exercise documentation. Planning team members 

should be assigned responsibility for the tasks outlined in the meeting. 

• Mid-Term Planning Conference (MPC): Typically employed for operations-based 

exercises (e.g., drills, functional exercises (FEs), and FSEs), the MPC presents an additional 

opportunity in the planning timeline to settle logistical and organizational issues that arise 

during planning such as staffing concepts, scenario and timeline development, scheduling, 

logistics, administrative requirements, and reviewing draft documentation. A Master 

Scenario Events List (MSEL) Conference can be held in conjunction with or separate from 

the MPC to review the scenario timeline for the exercise. 

• Final Planning Conference (FPC): A forum to review the process and procedures for 

conducting the exercise, final drafts of all exercise materials, and all logistical requirements. 

There should be no major changes made to either the design or the scope of the exercise or to 

any supporting documentation. 

Design and Development 

Building on the exercise foundation, the design and development process should focus on 

identifying objectives, designing the scenario, creating documentation, coordinating logistics, 

planning exercise conduct, and selecting an evaluation and improvement methodology. 

Objectives 

Exercise objectives define specific goals, provide a framework for scenario development, guide 

individual organizational objective development, and provide exercise evaluation criteria. 

Generally, planners will limit the number of exercise objectives to enable timely execution, 

facilitate design of a reasonable scenario, and adequately support successful completion of 

exercise goals. 

Scenario 

A scenario provides the backdrop and storyline that drive an exercise. The first step in designing 

the scenario is determining the type of threat/hazard (e.g., chemical, biological, radiological, 

nuclear, explosive, cyber, or other). All exercises funded by DHS/ODP must employ a terrorism 

scenario. Thought should be given to creating a scenario that involves local incidents and local 
34

facilities and is based on exercise objectives derived from the jurisdiction’s risk and vulnerability 

assessment. For example, if the risk/vulnerability assessment identified a critical infrastructure 

at a local facility (such as a refinery or chemical plant) as a vulnerable target, the scenario could 

describe a terrorist event at that facility. Each type of hazard presents its own strengths and 

weaknesses for evaluating different aspects of prevention, response, and recovery, and is 

applicable to different exercise objectives. 

The next step is to determine the venue (facility or site) that the scenario will affect. Venue 

selection should be based on the type of hazard used. For example, if a nonpersistent chemical 

agent (e.g., sarin) is selected, the venue should not be an open-air facility (e.g., stadium, park) 

because of the agent’s dissipating characteristics. 

Documentation 

The list below briefly describes typical exercise products. Documentation materials such as 

meeting minutes, presentations, agendas, and media releases have been omitted because these 

documents typically are created while developing the primary products and are discussed in 

more detail in HSEEP Volume II: Exercise Evaluation and Improvement and HSEEP Volume 

III: Exercise Program Management and Exercise Planning Process. 

 

 A Situation Manual (SITMAN) is a participant handbook for discussion-based exercises, 

particularly TTXs. It provides background information on the exercise scope, schedule, and 

objectives. It also presents the scenario narrative that will drive participant discussions 

during the exercise. The SITMAN should mirror the multimedia briefing, supporting the 

scenario narrative and allowing participants to read along while watching events unfold. 

 The Exercise Plan (EXPLAN), typically used for operations-based exercises, provides an 

exercise synopsis and is published and distributed prior to the start of the exercise. In 

addition to addressing exercise objectives and scope, the EXPLAN assigns tasks and 

responsibilities for successful exercise execution. The EXPLAN should not contain detailed 

scenario information, such as the hazard to be employed. This document is generally 

intended for exercise players and observers. 

 The Controller and Evaluator (C/E) Handbook supplements the EXPLAN, containing 

more detailed information about the exercise scenario and describing exercise controllers’ 

and evaluators’ roles and responsibilities. Because the C/E Handbook contains information 

on the scenario and exercise administration, it should be distributed only to those individuals 

specifically designated as controllers or evaluators. Larger, more complex exercises may use 

Control Staff Instructions (COSIN) and an Evaluation Plan (EVALPLAN) in place of, or 

to supplement, the C/E Handbook. 

 The MSEL is a chronological timeline of expected actions and scripted events to be injected 

into exercise play by controllers to generate or prompt player activity. It ensures necessary 

events happen so that all objectives are met. Larger, more complex exercises may also 

employ a Procedural Flow (PROFLOW), which differs from the MSEL in that it only 

contains expected player actions or events. 
35

 DHS/ODP has developed Exercise Evaluation Guides (EEGs) to help with exercise 

evaluation. These guides incorporate the critical tasks that should be completed in an 

exercise. The EEGs have been developed for use by experienced exercise evaluators, as well 

as by practitioners who are subject-matter experts but have little or no exercise evaluation 

experience. EEGs provide evaluators with information on what they should expect to see, 

space to record observations, and questions to address after the exercise as a first step in the 

analysis process. 

Policies 

Exercise policies are developed to provide guidance or parameters of acceptable practices for 

designing, developing, conducting, and evaluating exercises. They are designed to prevent, or at 

a minimum mitigate, the impact of an action that may cause bodily harm to participants, 

destruction of property, or embarrassment to the State or local community or DHS/ODP. State 

and local jurisdictions should develop policies appropriate to the type of exercise that address 

safety, media, cancellation, and weather. 

At a minimum, DHS/ODP requires establishing and using a weapons safety policy for rendering 

safe and marking/replacing weapons normally carried to an incident site by participants. 

Exercise Conduct 

After design and development tasks are complete, the exercise takes place. Exercise conduct 

details include setup, briefings, facilitation/control/evaluation, and wrapup activities. 

Setup 

The planning team should visit the exercise site on the day prior to the event to set up the site. 

On the day of the exercise, planning team members should arrive several hours before the 

scheduled start to handle any remaining logistical or administrative items pertaining to setup and 

to arrange for registration. 

The room layout for a discussion-based exercise is of particular importance. The facility should 

be large enough to accommodate all participants, observers, and facilitators/presenters, with 

enough tables and chairs available. Table arrangement varies according to exercise type. For a 

TTX, the number of tables should be based on the number of participating functional areas. The 

layout should allow for as much participant and facilitator interaction as possible. Facilities 

should be reserved solely for exercise purposes and should be free from distractions. 

In the setup for an operations-based exercise, planners must consider the assembly area, response 

route, response operations area, parking, registration, observer/media accommodations, and a 

possible Simulation Cell (SIMCELL) facility. Restrooms and water should be available to all 

participants, observers, and actors. All individuals permitted at the exercise site should wear 

some form of identification. Perimeter security and site safety during setup and conduct are 

essential. 

Presentations/Briefings 

Presentations and briefings are important tools for delivering information. A discussion-based 

exercise generally includes a multimedia presentation to present the scenario and accompany the 
SITMAN. An operations-based exercise may include briefings for controllers/evaluators, 

hospitals, actors, players, and observers/media. A briefing and/or presentation is an opportune 

time to distribute exercise documentation, provide necessary instructions and administrative 

information, and answer any outstanding questions. 

Facilitation/Control/Evaluation 

In both discussion- and operations-based exercises, facilitators and controllers guide exercise 

play. During a discussion-based exercise, the facilitator is responsible for keeping participant 

discussions on track with the exercise design objectives and making sure all issues and objectives 

are explored as thoroughly as possible despite operating under time constraints. 

In an operations-based exercise, controllers plan and manage exercise play, set up and operate 

the exercise incident site, and possibly take the roles of response individuals and agencies not 

actually participating in the exercise. Controllers give key data to players and may prompt or 

initiate certain player actions (as listed in the MSEL/PROFLOW) to ensure that objectives are 

met and the exercise maintains continuity. Controllers are the only participants who should 

provide information or direction to the players. All controllers should be accountable to one 

senior controller. If conducting an exercise requires more controllers or evaluators than are 

available, a controller may serve as an evaluator; however, this typically is discouraged. 

Evaluators are selected from various agencies to evaluate and comment on designated functional 

areas of the exercise. Evaluators are chosen based on their expertise in the functional area(s) 

they will review. Evaluators have a passive role in the exercise and only note the 

actions/decisions of players; they do not interfere with exercise flow. Evaluators should use 

EEGs to record observations and notes. 

Players

Players have an active role in responding to an incident by either discussing (in a discussionbased exercise) or performing (in operations-based exercises) their regular roles and 

responsibilities. 

Actors/Simulators 

Actors are volunteer victims who simulate specific roles, including injuries from a disaster, to 

add realism to an exercise. Simulators act on behalf of an agency or organization that is not 

participating in the exercise. 

Evaluation 

As evaluated practice activities, exercises provide a process for continuous improvement. 

Evaluation is the cornerstone of exercises; it documents strengths and opportunities for 

improvement in a jurisdiction’s preparedness and is the first step in the improvement process. 

To meet the intent of both Congress and the President’s National Strategy for Homeland Security 

that investments in State and local preparedness result in demonstrable improvements in the 

Nation’s ability to prevent and respond to terrorism incidents, DHS/ODP has established a 

comprehensive exercise evaluation program, described in HSEEP Volume II: Exercise 

Evaluation and Improvement. 

36
37

The evaluation process for all exercises includes a formal exercise evaluation, integrated 

analysis, and an AAR/IP that should begin with exercise planning and end when improvements 

have been implemented and validated through subsequent exercises. 

Debrief/Hot Wash 

A debrief (for facilitators or controllers/evaluators) and/or hot wash (for players) should occur 

following both discussion- and operations-based exercises. 

The debrief is a forum for planners, facilitators, controllers, and evaluators to review and provide 

feedback on the exercise. It should be a facilitated discussion that allows each person an 

opportunity to provide an overview of the functional area they observed and document both 

strengths and areas for improvement. The debrief should be facilitated by the Lead Exercise 

Planner or the Exercise Director; results should be captured for inclusion in the AAR. Other 

sessions, such as a separate debrief for hospitals (during an operations-based exercise), may be 

held as necessary. 

A hot wash occurs immediately following an operations-based exercise and allows 

players/responders the opportunity to provide immediate feedback. It enables controllers and 

evaluators to capture events while they remain fresh in players’ minds and to ascertain players’ 

level of satisfaction with the exercise and determine any issues or concerns and proposed 

improvement items. Each functional area (e.g., fire, law enforcement, medical) should conduct a 

hot wash, which should be facilitated by the lead controller for that area. 

The debrief and/or hot wash provides an ideal time for facilitators, controllers, evaluators, and 

players to complete and submit their completed EEGs and feedback forms. Information from 

these forms should be included in the AAR/IP. 

After Action Analysis and Report 

The AAR is used to provide feedback to participating jurisdictions on their performance during 

the exercise. The AAR summarizes what happened and analyzes performance of the tasks 

identified through the planning process as critical and the demonstrated capacity to accomplish 

the overall exercise goal. The AAR includes recommendations for improvements based on the 

analysis, which will be addressed in the IP. 

An AAR should be prepared for each TTX, game, drill, FE, and FSE conducted under HSEEP; a 

Summary Report should be produced for workshops and seminars. 

To prepare the report, the exercise evaluation team will analyze data collected from the hot wash 

and/or debrief, participant feedback forms, and other sources (e.g., plans, procedures) and 

compare the actual results with the intended outcome. The level of detail in an AAR reflects the 

exercise type and size. AARs describe the exercise scenario, player activities, preliminary 

observations, major issues, and recommendations for improvement. 

Improvement Planning 

Postexercise activities are essential to garnering the benefits of an exercise. Careful analysis and 

prioritization should go into developing the AAR recommendations and the IP content. 
Improvement Plan 

The IP converts lessons learned from the exercise into concrete, measurable steps that result in 

improved response capabilities. It is developed by the jurisdiction and specifically details the 

actions that will be taken to address each recommendation presented in the draft AAR, who or 

what agency will be responsible for taking the action, and the timeline for completion. This 

information should be derived from an After Action Conference conducted after the draft AAR is 

completed. 

Improvement Tracking and Planning 

Once the IP has identified recommendations and action items and responsibility and due dates 

have been assigned, the jurisdiction and/or organization/agency should ensure that each action 

item is tracked to completion. Each State should review all exercise evaluation feedback and 

resulting IPs to assess progress on enhancing preparedness and incorporate the information into 

its planning process. This review process may identify needs for additional equipment, training, 

exercises, coordination, plans, and procedures that can be addressed through the State Homeland 

Security Strategy or Multiyear Exercise Plan. 

38
Notes

 

1

 Refers to U.S. Department of Homeland Security, Office for Domestic Preparedness (DHS/ODP), funding through

either the Urban Areas Security Initiative (UASI) or the DHS/ODP State funding program, known in FY 2004 as the 

Homeland Security Grant Program (HSGP). 2

 Approved scenarios may include chemical, biological, radiological, nuclear, explosive, agricultural, or cyber

terrorism-related events. 3

 The word “State” as mentioned throughout this document refers to the State Administrative Agency (SAA) or its 

designated agency responsible for exercise administration and coordination. While ODP administers UASI, the 

State is ultimately responsible for meeting the requirements outlined in the Homeland Security Exercise and 

Evaluation Program (HSEEP) and ensuring its urban areas and local jurisdictions are in compliance with this 

doctrine. 4

 Under UASI, designated urban areas will submit a 2-year Exercise Plan. Under HSGP, States will submit a 3-year 

Exercise Plan. 5

 Approved scenarios may include chemical, biological, radiological, nuclear, explosive, agricultural, or cyber

terrorism-related events. 

39
A-1

Appendix A – Other Major DHS Exercise 

Programs 

Border and Transportation Security 

Transportation Security Administration 

The Aviation and Transportation Security Act, Pub. L. 107–71, gave the Transportation 

Security Administration (TSA) the responsibility for security across all modes of 

transportation. TSA is responsible for intermodal transportation security planning, 

prevention/protection measures, and preparedness initiatives. TSA, through regulatory 

development, intends to implement a National Intermodal Transportation Security 

Exercise and Evaluation Program (NITSEEP) as a mechanism to evaluate the 

effectiveness of the transportation industry’s security plans and to ensure the national 

transportation system’s preparedness to withstand or respond to a terrorist attack. TSA 

recognizes the U.S. Department of Homeland Security, Office for Domestic Preparedness 

(DHS/ODP) HSEEP program as an effective tool for the transportation industry to use to 

meet the intent of TSA regulations. Therefore, TSA recommends that an owner or 

operator subject to its regulations follow the guidelines set forth in HSEEP to fulfill the 

requirements. Currently, there is no direct HSEEP-related funding for owners and 

operators subject to TSA exercise requirements; however, those owners and operators 

who participate in a DHS/ODP-sponsored exercise will receive credit for a TSAmandated exercise.

Emergency Preparedness and Response 

Federal Emergency Management Agency 

Chemical Stockpile Emergency Preparedness Program 

Chemical Stockpile Emergency Preparedness Program (CSEPP) is a partnership between 

the Federal Emergency Management Agency (FEMA) and the U.S. Army that intends to 

help communities surrounding the eight U.S. chemical stockpile sites enhance their 

abilities to respond in the unlikely event of a chemical agent emergency. CSEPP 

exercises focus on partnerships among Federal, State, and local jurisdictions involved in 

the program, which is administered through the States. 

CSEPP communities have been recognized nationally for their abilities to respond to 

emergencies of all kinds. Many of the lessons learned in CSEPP are used in industry and 

CSEPP employs partnerships with other public safety organizations to ensure that the 

knowledge gained has the greatest benefit for the most people. 

CSEPP activities include: 

 Improving public warning capabilities 

 Building and upgrading state-of-the-art Emergency Operations Centers (EOCs) 
A-2

 Training emergency managers and first responders 

 Including functional exercises (FEs) that improve readiness 

 Increasing public knowledge and understanding of protective actions 

 Overpressurizing schools to ensure children’s safety 

 Studying emergency response options to determine the best way to protect 

communities 

 Training doctors and nurses to treat victims of chemical agent exposure 

Radiological Emergency Preparedness Program 

The mission of the Radiological Emergency Preparedness (REP) program is to enhance 

planning, preparedness, and response for all types of peacetime radiological emergencies 

among all Federal, State, and local governments and the private sector, and to ensure that 

adequate offsite emergency plans and preparedness are in place and can be implemented 

by State and local governments. Emergency plans must protect the health and safety of 

the public living in the vicinity of commercial nuclear power plants and must be 

evaluated through biennial exercises. 

Master Exercise Practitioner Program 

The FEMA Emergency Management Institute (EMI) Master Exercise Practitioner 

Program (MEPP) is a performance-based curriculum focusing on the competencies 

required to plan, develop, design, conduct, and evaluate jurisdiction-specific exercises. 

The Resident MEPP consists of three resident courses and eight proficiency 

demonstration activities and the Nonresident MEPP requires the completion of several 

independent study courses and several additional courses administered by the appropriate 

State Emergency Management Agency. A Nonresident MEPP candidate may complete 

the training and proficiency demonstration requirements by enrolling in the exercise 

practicum, a unique self-directed and -negotiated series of 11 proficiency demonstrations. 

The MEPP candidate is challenged to apply the knowledge, skills, and abilities acquired 

through participation in Comprehensive Exercise Curriculum (CEC) courses to 

emergency management exercises. Additional information is available at 

http://training.fema.gov/EMIWeb. 

Metropolitan Medical Response System 

The primary focus of the Metropolitan Medical Response System (MMRS) program is to 

develop or enhance existing emergency preparedness systems to effectively respond to a 

public health crisis, especially a weapons of mass destruction (WMD) event. Through 

preparation and coordination, local law enforcement, fire, hazardous materials (HazMat), 

emergency medical services (EMS), hospital, public health, and other first-responder 

personnel plan how to more effectively respond in the first 48 hours of a public health 

crisis. 

Strategic National Stockpile Exercises 

An act of terrorism (or a large-scale natural disaster) targeting the U.S. civilian 

population will require rapid access to large quantities of pharmaceuticals and medical 

supplies; such quantities may not be readily available unless special stockpiles are 

created. No one can anticipate exactly where a terrorist will strike and few State or local 
governments have the resources to create sufficient stockpiles on their own. Therefore, a 

national stockpile has been created as a resource for all. 

The Homeland Security Act of 2002 tasked DHS with defining the goals and 

performance requirements of the Strategic National Stockpile (SNS) program (formerly 

the National Pharmaceutical Stockpile) as well as managing the actual deployment of its 

assets. The SNS program is managed jointly by DHS and the U.S. Department of Health 

and Human Services (HHS) and works with governmental and nongovernmental partners 

to upgrade the Nation’s response capacity. Ensuring capacity is developed at the Federal, 

State, and local levels to receive, stage, and dispense SNS assets is critical to the success 

of this initiative. 

The SNS program is committed to participating in one external (defined as involving an 

actual deployment of personnel and material) exercise each month. The SNS Exercise 

Life Cycle formalizes the process the SNS program uses to receive, process, and approve 

requests for exercise participation. The SNS Exercise Life Cycle spans more than 10 

months, 9 prior to and 1 after the date of the exercise. Requests for SNS exercise support 

should be submitted a minimum of 9 months prior to an exercise; SNS exercise support is 

in high demand and may exceed the program’s current capability. The SNS program also 

needs recovery time to refit specialized cargo containers and prepare them for shipment 

to the next exercise. The program prioritizes requests based on the order of receipt, the 

educational value of the request, previous opportunities provided to the requesting 

agency, resource requirements, and the exercise’s proposed goals, objectives, and plans. 

Only the office of the director has the authority to commit SNS program participation in 

an exercise. 

U.S. Coast Guard 

National Preparedness for Response Exercise Program 

The U.S. Coast Guard (USCG) National Preparedness for Response Exercise Program 

(PREP) establishes an exercise program that meets the intent of section 4202(a) of the Oil 

Pollution Act of 1990 (OPA 90), amending section 311(j) of the Federal Water Pollution 

Control Act (FWPCA). 

As described in the National Oil and Hazardous Substances Pollution Contingency plan 

(NCP 40 CFR 300), PREP focuses on exercise and evaluation government area 

contingency plans and industry spill response plans (oil and hazardous substance). 

PREP is a coordinated effort of the four Federal agencies with responsibility for oversight 

of private-sector oil and hazardous substance pollution response preparedness: USCG, 

the U.S. Environmental Protection Agency (EPA), the U.S. Department of 

Transportation’s Research and Special Programs Administration (RSPA), and the U.S. 

Department of the Interior’s Minerals Management Service (MMS). These agencies 

worked with Federal, State, and local governments, the oil and marine transportation 

industry, cleanup contractors, and the general public to develop the program. PREP 

meets the OPA mandate for exercises and represents minimum guidelines for ensuring 

overall preparedness within the response community. It also recognizes the economic 

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and operational constraints faced by those affected by the exercise requirements. The 

guidelines, which are reviewed periodically through a public workshop process, outline 

an exercise program that satisfies the exercise requirements of the four Federal regulatory 

agencies. 

 

PREP requires each industry response plan holder and government area contingency plan 

holder to engage in a series of exercises aimed at assessing the entire plan over the course 

of a 3-year cycle. Most of these exercises are conducted wholly within the plan holder’s 

organization each year, including: 

 Quarterly notification exercise to assess internal communications and coordination 

 Quarterly emergency procedures exercise to assess initial actions of facility or vessel 

personnel in the event of a spill emergency 

 Equipment deployment exercise to assess capability of response personnel and 

equipment in executing response strategies contained in the plan (semiannually if 

owned, annually if contracted) 

 Annual spill management team exercise to assess plan holder’s spill response 

management organization and its ability to implement and manage response plan 

strategies and resources 

 Unannounced exercise using one or more of the above exercise types to assess 

ongoing readiness to respond quickly in an emergency (at least annually) 

 Government and industry plan holders also interact in external exercises: 

- A maximum of four government-initiated unannounced exercises in each 

contingency planning area, in which the government oversight agency requires 

an industry plan holder to initiate response to a small discharge, including 

equipment mobilization and deployment 

- Once every 3 years each USCG and EPA contingency planning area holds an 

area exercise involving major joint government and industry plan holders to 

assess cooperation, compatibility, and adequacy of strategies. It must include 

both the spill management team and equipment deployment exercises. 

 

Spill of National Significance Exercise Program 

A Spill of National Significance (SONS) is a rare catastrophic oil or hazardous substance 

spill event that captures national attention and requires the coordinated response of 

multiple Federal and State agencies over an extended period of time. 

The USCG SONS Exercise Program increases awareness of USCG response protocols in 

place for responding to a catastrophic spill event. The exercise allows senior 

administration officials at both the regional and national levels to practice emergency 
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interaction with Congress, the States, and industry in a nonemergency environment. The 

program’s major objectives are: 

 Increase national preparedness for a SONS scenario by engaging all levels of spill 

management in a coordinated response 

 Improve, through practice, the ability of the National Incident Commander (NIC) 

organization to manage a SONS incident 

 Maintain awareness by agency heads and lawmakers in Washington, D.C., of their 

role during a SONS response 

A SONS exercise typically consists of field, regional, and headquarters components all 

connected by a common scenario. The field-level exercise is a full-scale exercise (FSE) 

that tests the area contingency plan for one or more port areas. The NIC-level exercise 

tests a regional contingency plan and internal USCG policy directives and their ability (as 

they relate to the NIC) to effectively manage a SONS, and supports the field and 

headquarters components. The headquarters-level exercise brings together senior agency 

officials and industry representatives to discuss interagency issues and responsibilities. It 

tests the national contingency plan and appropriate USCG policy as they relate to a 

SONS response. 

 

SONS exercises are conducted approximately every 2 to 3 years, alternating among East 

Coast, Gulf Coast, West Coast, and Great Lakes scenarios. 
Appendix B – Acronyms 

AAR After Action Report 

C&O Concept and Objectives 

C/E Handbook Controller and Evaluator Handbook 

CEC Comprehensive Exercise Curriculum 

CBRNE Chemical, biological, radiological, nuclear, or 

explosive 

CDC Centers for Disease Control and Prevention 

COSIN Control Staff Instructions

CPX Command post exercise

CSEPP Chemical Stockpile Emergency Preparedness 

Program

CSID Centralized Scheduling and Information Desk 

DHS U.S. Department of Homeland Security 

DoD U.S. Department of Defense 

DOJ U.S. Department of Justice 

DPETAP Domestic Preparedness Equipment Technical 

 Assistance Program

EEG Exercise Evaluation Guide 

EMI Emergency Management Institute 

EMS Emergency medical services 

EOC Emergency Operations Center 

EOP Emergency operating procedure 

EPA U.S. Environmental Protection Agency 

EPW Exercise Plan Workshop 

EVALPLAN Evaluation Plan 

EXPLAN Exercise Plan 

FBI Federal Bureau of Investigation 

FE Functional exercise 

FEMA Federal Emergency Management Agency 

FOUO For Official Use Only 

FPC Final Planning Conference 

FSE Full-scale exercise

HazMat Hazardous materials 

HDER Homeland Defense Equipment Reuse program

HHS U.S. Department of Health and Human Services 

HSC Homeland Security Council 

HSEEP Homeland Security Exercise and Evaluation 

Program

HSGP Homeland Security Grant Program

IC Incident Command 

ICS Incident Command System

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ICTAP Interoperable Communication Technical Assistance 

Program

IP Improvement Plan 

IPC Initial Planning Conference 

LLIS Lessons Learning Information Sharing 

MEPP Master Exercise Practitioner Program 

MIPT National Memorial Institute for the Prevention of 

 Terrorism

MMRS Metropolitan Medical Response System

MOU Memorandum of understanding 

MPC Mid-Term Planning Conference 

MSEL Master Scenario Events List 

NEP National Exercise Program

NIMS National Incident Management System 

NITSEEP National Intermodal Transportation Security 

Exercise and Evaluation Program

NLD-DPP Nunn-Lugar-Domenici Domestic Preparedness 

 Program

NSSE National Special Security Event 

ODP Office for Domestic Preparedness 

OPA 90 Oil Pollution Act of 1990 

PEP Prepositioned Equipment Program

POC Point of contact 

PPE Personal protective equipment 

PREP U.S. Coast Guard National Preparedness for 

Response Exercise Program

PROFLOW Procedural Flow 

RAT Rapid Assistance Team

REP Radiological Emergency Preparedness 

RSPA U.S. Department of Transportation, Research and 

Special Programs Administration 

SAA State Administrative Agency 

SHSEEP State Homeland Security Exercise and Evaluation

Program

SIMCELL Simulation Cell 

SITMAN Situation Manual 

SNS Strategic National Stockpile 

SOE Senior Officials Exercise 

SONS Spill of National Significance 

SOP Standard operating procedure 

TA Homeland Security Preparedness Technical 

 Assistance Program

TOPOFF Top Officials National Exercise Series 

TSA Transportation Security Administration 

TTX Tabletop exercise

UASI Urban Areas Security Initiative 

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UAWG Urban Area Working Group 

UC Unified Command 

UCS United Command System 

USCG U.S. Coast Guard 

USDA U.S. Department of Agriculture 

WMD Weapons of mass destruction 

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