CASCADE’19 – EUROPEAN CIVIL PROTECTION EXERCISE | FINAL REPORT
INDEX
EXECUTIVE SUMMARY ...... 5 A. FRAMEWORK ...... 7 1. PLANNING ...... 10 2. OPERATIONAL COMPONENTS ...... 17 3. SUPPORT TO POPULATIONS...... 18 4. HOST NATION SUPPORT ...... 20 5. CONSULAR SUPPORT ...... 21 6. OBSERVER PROGRAMMES ...... 22 7. LOGISTICS ...... 24 8. IT AND COMMUNICATION SYSTEMS ...... 25 9. IMAGE AND COMMUNICATION ...... 27 10. EVALUATION ...... 29 B. SECTOR REPORTS ...... 32 C. EVALUATION OF THE REGIONAL AND EUROPEAN TEAMS ...... 47 D. ANALYSIS OF THE ESTABLISHED OBJECTIVES ...... 48 E. OVERALL CONCLUSIONS ...... 52 F. PROPOSALS...... 55
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ACCRONYMS
ALTICE ALTICE (telecommunications company) ANEPC National Authority for Emergency and Civil Protection APA Portuguese Environment Agency APA-S.A. Aveiro Port Administration APC Civil Protection Agents APSS Setúbal and Sesimbra Ports Administration BoO Base of Operations CA Area Commander CAR Response Support Cell CB Fire Brigade CBS Fire Fighter Squad CCO Operational Coordination Centre CCON National Operational Coordination Centre CCOD District Operational Coordination Centres CCOM Municipal Operational Coordination Centres CDOS District Command for Relief Operations CE European Commission CECIS Common Emergency Communication and Information System CEGAI International Aid Management Centre CI International Coordinator COS Incident Commander CNE National Scouts Association CNEPC National Command for Emergency and Civil Protection CODIS District Operational Commander CONEPC National Commander for Emergency and Civil Protection CPA Aveiro Port Captaincy CPS Setúbal Port Captaincy CS Sector Commander CVP Portuguese Red Cross DCPM Marine Pollution Combat Division DGAM Directorate-General for the Maritime Authority DGAV Directorate-General for Food and Veterinary DGECHO EC Directorate-General for European Civil Protection and Humanitarian Aid Operations DGS Directorate-General for Health DIREX Head of Exercise DNAR National Directorate for Resources Administration EC Cooperating Entity ECO-OIL (contaminated water treatment company) EDP Energias de Portugal (energy company) EMSA European Maritime Safety Agency ENB National Firefighters School
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ENDEX End of Exercise EQAV Evaluators Team EQINJ Injectors Team ERCC Emergency Response Coordination Centre EUCPT European Union Civil Protection Team EXE Army FFAA Armed Forces FEPC Civil Protection Special Force FID First Impressions Debriefing GEC Consular Emergency Office GNR National Guard HNS Host Nation Support INEM National Medical Emergency Institute INMLCF National Medical Examiner and Forensic Science Institute IP Infraestruturas de Portugal (infrastructures company) IPMA Portuguese Institute for Sea and Atmosphere IPST Portuguese Institute for Blood and Transplantation IRN Institute for Records and Notaries ISEPC Emergency and Civil Protection Service Inspectorate ISS Social Security Institute LIVEX Live Exercise MP Public Prosecution Office MAR Navy MNE (GEC) Ministry of Foreign Affairs - Consular Emergency Office MP Public Prosecution Office OCS Media stakeholders OFAC Support Officer OFLIG Liaison Officer OFRP Public Relations Officers ORDOP Operations Order PCDIS District Command Post PCMUN Municipal Command Post PCNAC National Command Post PCO Operational Command Post PJ Criminal Police PLACOM Communications Plan PLANOP Operations Plan PoE Point of Entry PSP Public Security Police RDC Reception and Departure Center REBONAVE (tugboats and naval assistance company) RELSEC Sector Report REN National Power Network company REPC Civil Protection Strategic Network RFEX Exercise Final Report ROB Operational Firefighter Network RSB Fire Brigade Regiment of Lisboa
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SADO System for Supporting Operational Decision-Making SALOC Operations Room SG Steering Committee SGO Operations Management System SASEMAR Maritime Safety and Rescue Society, Spain SEF Borders and Immigration Agency SIOPS Integrated System for Protection and Relief Operations SIRESP Integrated System for Emergency and Safety Networks of Portugal SMPC Municipal Civil Protection System SRPCBA Regional Civil Protection and Firefighting Service of the Azores SRPCM Regional Civil Protection Service of Madeira STARTEX Start of Exercise SVITZER Maritime transports company TANQUISADO Maritime terminals company THW Technisches Hilfswerk TN National Territory TO Theatre of Operations TTX Table Top Exercise UE European Union ZCR Concentration and Reserve Zone
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EXECUTIVE SUMMARY
The European Exercise CASCADE'19 was held in Portugal from 28 May to 01 June 2019.
CASCADE'19, in which Belgium, Spain, France, Croatia and Germany (THW) took part, was the outcome of a huge organizational effort, based on a strategic vision that looked forward in time and space and which allowed for one of the greatest civil protection operational training ever conducted within the European Union (UE).
At a time when Europe is seeking to strengthen its capacity for joint response to emergency situations of higher complexity, and when faced with the awareness that only duly joint and articulated operational training will enable an effective response, CASCADE'19 has set itself as an important lever for European cooperation in civil protection and emergency response, showing that there is the willingness, capacity and know-how to face the challenges the future will certainly bring us.
This exercise combined a total of about 60 entities, 63 scenarios with varying degrees of complexity, about 4,500 operatives, of which 139 were from the EU and 37 from the autonomous regions of Madeira and the Azores, about 80 staff from the Portuguese National Emergency and Civil Protection Authority (ANEPC) and also 2,340 roleplayers. Overall, CASCADE'19 implicated close to 6,920 people.
The ambition on the CASCADE´19 application showed straight off the levels of demand patent in the exercise’s goals. Above all, Portugal wanted to test itself and step away from the barriers of traditional exercises.
This posture of exigency and thoroughness allowed us to embrace the challenges seriously and with honesty. These were not just to meet the objectives that were initially set, but rather, and equally important, to identify the areas that needed improvement, the strengths and the windows of opportunity that could surely be explored in the future whether at national or at European level.
This report thereby mirrors the inputs of the various internal units and the four ANEPC district commands that were directly involved, as well as the external entities that took part and, of course, the European teams.
We are certain that the future will bring us increasingly complex emergencies, and we are aware that there is an increasingly greater need to plan the Host Nation Support procedures. As such, we chose to test the mechanisms previously thought out in the office and we were able to learn important lessons that will contribute to a specific National Operational Directive (DON) on this matter, a document which can be shared and adapted at EU level.
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An essential aspect of this exercise was the full integration of scenarios concerning marine pollution, a key area in civil protection policies at national level and which entails huge challenges by its nature. These challenges are mostly in the areas of operational and institutional cooperation, the mechanisms for integrating different resources, but which are, at the same time, complementary in any emergency response situation, and also at the level of operational command.
CASCADE'19 was therefore an absolutely critical training moment that will bring new lessons and new developments, in particular to Portugal, Spain, Belgium, Croatia, France and Germany, and, in general, to Europe, in terms of emergency response in the field of civil protection.
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A. FRAMEWORK
a. The CASCADE'19 exercise took place in Portugal from 28 to 31 May 2019. It was organized by ANEPC, together with the General-Directorate for the Maritime Authority (DGAM), the civil protection services of Spain, France, Germany (THW), Croatia and Belgium, as well as the European Commission (EC). b. This exercise was organized under the Union Civil Protection Mechanism (Mechanism) and resulted from a proposal presented under the CALL UCPM-2017-EX-AG in June 2017 by the entities above referred. c. This proposal was selected by the EC for co-funding, with an overall estimated/budgeted cost of €1,214,017.82. d. Upon the initial decision to organize an exercise of this nature, ANEPC’s assumption was the perception of the need to create a differentiated opportunity for training, integrating both national and international partners, based on a complex and believable scenario that could be a challenge for all those taking part. e. This assumption was linked to the awareness that we live in a global setting that has been developing at a fast pace, which is much more difficult and complex than 10 or 20 years ago. It’s therefore essential for the different civil protection systems to be able to adapt and prepare to face increasingly demanding situations, whether in preparation or response phases. f. In this sense, a series of general objectives were proposed, directly linked to the results sought to be obtained in an exercise of this dimension, namely:
a) General objectives: To test the different scenarios that represent from some of the main risks the EU faces, such as floods, earthquakes, chemical accidents, dam collapses and marine pollution; To test the HNS procedures that are being consolidated in Portugal and lay them out in one single document that can be shared among Member States; To test and practice the operating procedures for decision-making in the processes for (1) requesting international assistance, (2) integrating and managing European teams in overall national procedures, and (3) demobilization procedures; To test the interoperability between the different modules and teams of the various EU countries; To test the inclusion of new technologies in the overall system for supporting operational decision-making;
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To test the integration of an EUCPT in organizing the national response within the EU framework; To increase awareness and preparedness of national and European population in the event of a disaster and also the important role played by the Mechanism; To test and foster international coordination and collaboration between the national CP and MP authorities of the EUCPM.
b) Outcomes: Improve the overall awareness of the importance that the responsible government authorities have, on the investment in preparation measures that include an international/European dimension; Improve the overall awareness of the importance of the EUCPM in the wider context of disaster response; Improve the interoperability of the modules via the identification of gaps and bottlenecks that could be further analysed in the future; A significant contribution to the overall awareness with regard to the importance of preparing and planning HNS procedures for international assistance; Greater collaboration and exchange of know-how between the Mechanism national authorities (CP and MP); The identification of the added-value of the risk analysis component in the planning phase for an exercise with an external dimension; The identification of the added-value of using drones for mapping, assessing and monitoring during emergencies; The exchange of experiences and lessons learnt identified.
Based on these general objectives, the following operational objectives were set as a National Directive:
ii. At National Level
1. To test and practice the procedures associated with planning a highly complex exercise. 2. To test the National Civil Protection and Emergency Plan (PNEPC). 3. To test the District Civil Protection and Emergency Plans (PDEPC) of the districts directly involved in the exercise.
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4. To test the Municipal Civil Protection and Emergency Plans (PMEPC) of the municipalities directly involved in the exercise. 5. To test the integration of the Clean Sea Plan (PML) with the Civil Protection and Emergency Plans (PNEPC, PDEPC and PMEPC). 6. To test the joint intervention procedures between the national teams with different skills and fields of action. 7. To test the interoperability between the national and European response teams. 8. To validate the national procedures on Host Nation Support (HNS), contributing to the development of specific guidelines on this matter.
iii. At European Level
1. Contribute to the EU ongoing efforts to improve response capacities under the Mechanism framework. 2. Test the HNS procedures (inbound/outbound forces component) as well as the deployment of European teams through the DG-ECHO ERCC (European Response Coordination Centre). 3. Test the interoperability between the different European teams and modules in a complex scenario. 4. Test the operational intervention and integration of the Mechanism’s civil protection teams (EUCPT – European Union Civil Protection Team). g. This Report thereby seeks to present a summary of the analysis carried out by those who took part in the planning and were involved in CASCADE'19, identifying windows of opportunity for future improvements in operational planning and response to more complex emergencies at national level, under the scope of the Mechanism.
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PROSPECTIVE ANALYSIS
1. PLANNING
a. Time and phases for planning i. The planning for CASCADE'19 began in October 2018, although a series of preparation actions had already begun, namely with regard to identifying objectives, areas and capabilities to be tested, and the sites and scenarios to be used for the exercise’s operational component. ii. At the strategic level, this planning involved members of ANEPC and DGAM, organized into working groups that were enlarged over time, whether internally within these institutions, or externally, involving the different intervention levels (national, district and local), as well as the different national entities invited to take part in the exercise. iii. The planning period, whether at the national command level or at the involved districts level, was also used to carry out specific training courses on critical subjects, for instance, the morgue and forensics services – an essential area, mostly in emergency scenarios with a high number of casualties.
b. Main actions carried out i. The main landmarks to highlight in the planning process are in the table below:
DATE ACTION OBJECTIVES PARTNERS Internal meeting at ANEPC to present the Project and the Promote the engagement of ANEPC (internal 12MAR18 Exercise to all ANEPCs´ head of all ANEPC units dimension) units ANEPC, DGAM, Kick-off meeting with members Present the first draft on the Spain, France, 04OCT18 of the consortium – Brussels, exercise’s overall Germany, Belgium, European Commission organization Croatia and EC Technical visits to the sites Assess the existing foreseen for developing the conditions at the different 22/23 OCT18 ANEPC and SMPC scenarios in the 4 districts sites and their suitability for involved in the exercise the outlined objectives Meeting to present the exercise 07NOV18 to Lisbon district level, involving Present the Exercise ANEPC and SMPC the main players Meeting to present the exercise 20NOV18 to Setúbal district level, involving Present the Exercise ANEPC and SMPC the main players Meeting to present the exercise 21NOV18 to Aveiro district level, involving Present the Exercise ANEPC and SMPC the main players
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DATE ACTION OBJECTIVES PARTNERS To coordinate the main 1st Project Management aspects related to the ANEPC, members 03DEC18 Committee Meeting – Carnaxide, exercise and the of the Consortium Lisbon participation of European and CE teams ANEPC, members To coordinate the main of the Consortium, aspects related to the CE, and Initial Planning Conference - 04DEC exercise and the representatives of Carnaxide, Lisbon participation of European the national entities and national teams invited to take part in the exercise Meeting to present the exercise 10JAN19 to Évora district level, involving Present the Exercise ANEPC and SMPC the main players Foster coordination of the ANEPC and Civil Several coordination meetings – JAN/FEB19 operational and logistics Protection Agents internal and external planning (APC) To coordinate the main 2nd Project Management aspects related to the ANEPC, members 25FEB19 Committee Meeting – Palmela, exercise and the of the Consortium Setúbal participation of European and CE teams ANEPC, members To coordinate the main of the Consortium, aspects related to the CE and Main Planning Conference - 26FEB19 exercise and the representatives of Palmela, Setúbal participation of European the national entities and national teams invited to take part in the exercise Foster coordination of the ANEPC and Civil Several coordination meetings – MAR/APR 19 operational and logistics Protection Agents internal and external planning (APC) To coordinate the main aspects related to the ANEPC members 3rd Project Management exercise and the of the Consortium Committee Meeting – Aveiro participation of European and CE teams ANEPC, members 23APR19 To coordinate the main of the Consortium, aspects related to the CE and Final Planning Conference – exercise and the representatives of Aveiro participation of European the national entities and national teams invited to take part in the exercise To foster the coordination ANEPC and Civil Several coordination meetings – MAY19 of the operational and Protection Agents internal and external logistical planning (APC)
ii. The series of actions identified in the table above enabled us to assure in a timely and coordinated manner, both internally, at ANEPC, and externally with the engagement of all the partners, that the exercise planning would cover all the areas of greatest importance, such as, preparing the scenarios and logistical support.
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c. DON and Exercise Instructions i. ANEPC drafted a National Operational Directive (DON) for the CASCADE'19 Exercise, for coordination purposes. This document was previously validated by all participating entities, distributed in hard copy during the Final Planning Conference held in April and made available to all on the exercise’s website at https://cascade19.pt/en/exercise-instructions/ ii. The target audience of this DON were the national partners associated with CASCADE'19. iii. Under the framework of European coordination, ANEPC also drafted a planning document “Exercise Instructions”, especially geared to ensure coordination with all national partners. This document was also made available on the exercise’s website (see link in the point above). d. Operating Plans and Orders i. The CDOS involved in the exercise drafted their respective “Plans of Operations” (PLANOP), which were distributed to the district entities involved. ii. The SMPC drafted their respective “Orders of Operations” (ORDOP) at the local level. e. Scenarios i. The most demanding set of actions in any exercise planning process, are the conceptualization, development and creation of the scenarios. ii. The geographical dispersion of the areas defined to play the exercise, the nature of the events that led to the several and different occurrences (scenarios) and the myriad of fields of action, with different levels of engagement in the operational response, set an extreme degree of complexity in preparing the sites for carrying out the exercise. iii. Accordingly, it was possible to create complex scenarios, with high levels of demand for the operational personnel, coherent with the events they would be facing, and representative of what could be expected in a real situation. iv. It is highly important to note that many of the scenarios were developed in order to trigger the activation of the general and special, internal and external Civil Protection and Emergency Plans, allowing us also to test these documents of fundamental importance in the field of emergency planning.
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v. The complexity in preparing the scenarios meant that in some cases their consolidation happened close to the start of the exercise, making it impossible to assess the team’s movement and deployment times. vi. This situation disabled a full evaluation of the security and safety mechanisms that ought to be implemented in some of the scenarios. vii. The table below shows the engagement of the districts, the municipalities and the scenarios developed in each of them, by level of complexity:
District Municipality Number of Scenarios Level I Level 2 Level 3 Total Aveiro Sever do Vouga 2 3 1 6 Águeda 1 1 0 2 Albergaria 0 1 1 2 Aveiro 0 2 1 3 Ílhavo 0 1 2 3 Lisbon Cascais 1 0 2 3 Sintra 1 0 1 2 Amadora 1 0 0 1 Odivelas 2 0 0 2 Lisboa 2 0 0 2 Alenquer 0 1 2 3 Évora Arraiolos 0 0 3 3 Évora 2 0 2 4 Vendas Novas 0 1 1 2 Montemor-o-Novo 1 0 2 3 Viana do Alentejo 0 0 2 2 Reguengos de Monsaraz 1 0 1 2 Setúbal Setúbal 2 0 1 3 Sesimbra 1 1 0 2 Seixal 1 1 2 4 Barreiro 3 0 2 5 Almada 3 0 1 4 4 Districts 2 Municipalities 24 12 27 63
viii. The scenarios were always structured based on the need for joint work and the interoperability between the national and European teams. ix. The fact that the scenarios were spread out geographically and the compliance with the requirements identified above, meant that the European teams were subject to great travels and to the shifting of their Bases of Operations, which, being seen as a negative aspect of this planning, represents the training associated with a situation, given the general scenario, that is highly likely to occur, and, as such, should also be trained.
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f. Injecting Occurrences i. In order to create some realism that would lead to the desired levels of dynamism to the exercise, a team of injectors was created (hereinafter EQINJ), which sought to ensure the exercise’s permanent livelihood, stimulating conduct at the level of the Command Posts (PC) and the Operational Coordination Centres (CCO) at both national and district level. ii. The preparation of such injects was based on the following principles: To create stimulating challenges that would enable the fulfilment of the exercise’s objectives and test the operational response systems in order to identify opportunities for improvement; Accommodate the specific training goals indicated by the various participating entities; Obtain a technically valid and sufficiently realistic base context from the point of view of weather, hydrological and seismic events that would trigger a disaster with cascade effects; Build a coherent narrative that would allow the interconnection of the 63 duly prepared LIVEX scenarios throughout the exercise; Coordinate the actions being played in the 4 districts engaged with the actions on a national level, encouraging the resolution of interdependent situations. iii. In all, the EQINJ prepared a set of about 400 injects targeted at the various recipients at national and district level. More than 95% of the pre-prepared injects were fed during the exercise, although some of them were adjusted in terms of content, recipient and time of issue. On the opposite plane, and given the exercise’s roll-out, some complementary injects were created to drive the resolution of specific aspects that arose in the meantime, a situation that resulted in an interesting dynamic to the entities involved. iv. The exercise had fruitful interaction towards solving the injects which, due to their complexity and transversal nature, required deep analysis and discussions. The participants’ acceptance of the injects and their commitment to responding (receive, diffuse and solve) was positive and increased throughout the exercise. Although during the initial phase there were some occasional difficulties in perceiving the role of the injectors and the way in which these injects were to be played (a fact that was justified by this being the first time that some entities or their representatives were involved in civil protection exercises), these difficulties lessened gradually over time, as the players became more involved.
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v. Balance report on the Injection of Occurrences
STRENGTHS ITEMS TO BE IMPROVED The entities’ engagement and the growing Managing the information and the lack of dynamism, rapport and collaborative spirit perception as to the damage caused in the that was felt since STARTEX up to ENDEX, scenario, which was many times taken in with the injects seen as real situations part (victims in the LIVEX scenario) and not (regardless of, in some cases, real in its whole (the SADO system was occurrences being under way); unsuitable for managing information in The challenge posed by the exercise (with complex scenarios); different geographical areas, a diversified The need to improve the exchange of range of events associated and a permanent information among all players, as development of actions at operational and sometimes the entities held information strategic level), which represented a great that was relevant for someone else but the means for learning and routine for mechanisms necessary to foster this procedures; interaction weren’t in place. Testing the response system in a multi-risk The exercise was lengthy (4 days), which led and multi-incident low probability yet high to moments of less dynamism and action and impact context, which is an important step caused the entities that rotated less in the for the future development of RescEU Command Posts to become tired. capabilities and, as a result, for the The need to become more familiar with the strengthening of Union Civil Protection concept of civil protection exercises in Mechanism. order to ensure transversal understanding as to how the process of injects is expected to unfold. This action should be accompanied by awareness raising as to the how a command post operates, so that a proper functioning of the technical teams that would be operating in a real situation (24h/24h) is assured.
g. Roleplayers i. The role to be played by Roleplayers was identified as critical right from the initial planning phase. ii. In this sense, the planning of preparatory actions with the dedicated points of contact (POCs) was assured, identified in the districts of Aveiro, Lisbon, Setúbal and Évora. An identification record was also drafted and distributed, which could support the entire recruitment and management work. iii. At the CNEPC level, an internal database was also created by the district POC, on the information on the Roleplayers, in order to obtain insurance. An information
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leaflet was also designed and distributed to sustain and support the entire information component in order for the Roleplayers understand the overall exercise. iv. All the Roleplayers were visibly identified in all the scenarios. v. As such, and for this process, there was a good communication between the different levels at stake, particularly in the cases where medical assistance was required for the Roleplayers during the exercise’s operational component: 6 cases of hospital assistance due to the high temperatures. vi. The timely planning, as well as the involvement of the district and local levels in disseminating the information, allowed us to garner strong support by civil society and we engaged around 2,340 Roleplayers.
h. Planning phase - Overall balance
STRENGTHS ITEMS TO BE IMPROVED Time allocated to planning; Balance between the planning of the macro Strong involvement of all partners at both organization of the exercise and the internal national and European level; organization (ANEPC) for the operational The moments created by the planning response; conferences, which enabled a prior The time dedicated to the consolidation of interaction between the national and the scenarios; European teams; The geographic distance between scenarios, Technical support given by the DG-ECHO with long travel times, is to be avoided. to ANEPC; The structuring of the different stages of planning; The methodology used with the Roleplayers, which enabled us to structure this process in a smoothly integrated way; The high number of people who joined the initiative, especially at the level of the Roleplayers. Highly demanding scenarios with a high degree of realism; Multiplicity of the situations developed in the scenarios, with a wide range of fields of actions being tested and always structured towards the joint work between the national and international forces.
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2. OPERATIONAL COMPONENTS
a. The operational component of CASCADE'19 is of the utmost relevance for the project overall. b. In order to accomplish the stablished goals, a total of 63 scenarios were developed, 60 entities, 21 municipalities and approximately 6,290 people engaged (national and European teams included), the ANEPC staff and the Roleplayers. c. The operational response was mostly driven towards the most critical areas normally associated with adverse weather conditions and seismic events, including also marine pollution scenarios, coordinated by DGAM together with ANEPC. d. Although the importance of all participating teams, that was highly recognized, the role of the voluntary Fire Brigades is worthy of note. The firefighters went beyond all expectations in terms of level of participation in CASCADE'19 and took on an absolutely fundamental role for the exercise overall, enabling the creation of an environment that was very close to reality, granting trust and realism to the various scenarios. e. It is worth noting that in total, 3,371 firefighters were mobilized. f. Of all the scenarios created, those relating to search and rescue in an urban environment and CBRN were without doubt the most complex and challenging ones. These scenarios demanded high level of technical preparation and the operational interventions were driven by the thoroughness that this type of operation demands, so it was possible to develop complex theatres of operation very close to reality. a. Marine pollution a. In terms of response to marine pollution, CASCADE’19 unfolded in two scenarios – Setúbal and Aveiro, with a total of 269 operatives in both scenarios. b. To prepare this exercise, with regard to the integration of the area of fighting marine pollution and respective interconnection with the host body (ANEPC), DGAM set up a steering team composed by a coordinator and two assistants. c. In addition to the several meetings with ANEPC and the 3 plenary conferences, the preparation of CASCADE’19, regarding fighting pollution, included 5 coordination meetings with the participating entities and 2 training courses for “Marine Pollution Combat Operators”, given by trainers from the Marine Pollution Combat Division (DCPM). In this area, in addition to the entities from the National Maritime Authority (DGAM, DCPM, Maritime Departments of the Centre (DMC) and the North (DMN) Captaincy of the Port of Setúbal (CPS) / CLPM and Captaincy of the Port of Aveiro (CPA) / CLPM), the following national and international organizations/entities also took
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part: Portuguese Navy, Hydrographic Institute, Svitzer, Rebonave, Port of Setúbal and Sesimbra Administration (APSS), Tanquisado, Eco-oil, Port of Aveiro Administration (APA-S.A.), European Maritime Safety Agency (EMSA) and Sociedad de Salvamento y Seguridad Marítima (SASEMAR), Prio, Aveiro Firefighters and Ílhavo Firefighters.
d. Operational components – Overall balance:
STRENGTHS ITEMS TO BE IMPROVED The massive participation of all APC, Need to create a timeline that is closer to particularly the firefighters, namely taking reality, avoiding waiting situations to get into into account that the exercise took place the scenarios; during the week, with high probability of Need to increase the number of meetings teams mobilization restraints; dedicated exclusively for preparing the work The excellent articulation between ANEPC on the field (less institutional/more and DGAM, in planning the marine pollution operational); component; not only considering their role The information flow on the country’s as national competent entities in its situation post-catastrophe and its respective areas, as well as their role as implications on the pollution scenarios (road EUCPM national authorities; status, other industrial accidents, number of The smooth and easy integration of the victims, etc.); marine pollution combat component and Despite the existence of an AMN POC in the interconnection with the national level the respective CDOS, the local operation (ANEPC) and district level (CDOS); coordination was not aware of events that The local command and control actions in had an impact on the combat pollution both marine pollution scenarios. operations.
3. SUPPORT TO POPULATIONS
a. This component of CASCADE'19 engaged the different national entities who share responsibilities in this matter right from the planning stage.
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b. Support to populations – Overall balance
STRENGTHS ITEMS TO BE IMPROVED The Cascade´19 Exercise allowed to test the Better understanding by the district and preliminary version of a new National municipal level PCO of the role of NCAPSE Operational Directive on Psychosocial (Coordination Centre for Emergency Support to population in Exceptional Psychological and Social Support) (the fact Scenarios (DAPCE), which had been the centre was unknown meant that it previously validated by 11 entities who are couldn’t be activated); representative of this intervention area; Better understanding by the district and Excellent articulation at the PCNAC level municipal PCO of the existence and mission between the national coordination of the of the ERAP (Early Psychosocial Evaluation Psychosocial Support Teams (EAPS) of Teams) already foreseen in the Civil ANEPC, the Social Security Institute (ISS), Protection and Emergency District Plans; the Portuguese Red Cross and the National Better general understanding of the Scouts; preliminary version of the DAPCE The scenarios of the ZCAP (zones of (Psychosocial Support in Exceptional population concentration and support) Scenarios Directive) tested during the allowed for excellent testing of the Exercise; articulation between ANEPC and the Better knowledge of the coordination of the national entities with responsibilities in this ZCAP (zones of population concentration matter namely the Social Security Institute and support) at municipal level. and the municipalities, giving as examples, the preparatory works in Évora and Aveiro districts; Excellent cooperation and promotion of synergies between the national coordination of the ANEPC/EAPS and the national coordination of the Social Security Institute for the CASCADE´19 exercise, where both entities worked together in 5 different scenarios in the 4 districts. c. As a lesson identified for the future in this field, it is fundamental to ensure that ANEPC fosters training targeted internally at CDOS and externally at the municipalities and entities present at the CCON and CCOD, on (1) DAPCE (Psychosocial Support in Exceptional Scenarios Directive), (2) management and coordination of the ZCAP (zone of population concentration and support); and (3) mission and set-up of the ERAP (Early Psychosocial Support Teams).
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4. HOST NATION SUPPORT
a. All preparatory work for the host nation support was based on the procedures envisaged in the Special Plan for Seismic Risk Emergency in the Lisbon Metropolitan Area and Surrounding Councils (PEERSAMLCL), which were successfully tested in the PTQuake’09 European Exercise, hosted by Portugal in 2009. b. Accordingly, and considering the exercise scenario, two Bases of Operations (BoO), located in Ovar and Vendas Novas were created. These infrastructures, supported by military units, ensured 213 operational personnel and 10 rescue dogs from 5 European modules (Germany, Belgium, Spain, France and Croatia) and the 3 national modules (Azores, Madeira and Leiria district), and where all the logistics and operational support needs were met. c. An international logistics support cell was active round-the-clock at each one of these bases, made up of ANEPC operational personnel who permanently ensured it was running and, together with the International PCNac cell, the deployment of the different modules involved. d. Still within this support, 2 members of the Civil Protection Special Force (FEPC) were allocated to each international module. They permanently assisted the modules since they entered national territory up to their departure, assuring not only the logistics connection, but also the operational connection in each scenario to which they were mobilized. e. A series of internal procedures were also tested, for receiving international assistance, particularly at the arrivals by air (Lisbon airport) and also at the land entry points. f. The PCNac had an international response cell to which it supplied a Mechanism Team, made up of 4 experts and one ERCC liaison officer.
g. Host Nation Support – Overall balance
STRENGTHS ITEMS TO BE IMPROVED Capacity for HNS; Prior framework of how the modules Integration of the support officers; intervene in each of the incidents; Strong commitment by all the national Waiting times at the transit points and entities with responsibilities in this area. It entering the incidents; was clear that HNS is not a function that is Distances between the BoO and some of limited to ANEPC’s competences; the scenarios; Communication and articulation with Tools to disclose the information so there is Modules, BoO and EUCPT; a common image of the exercise at all times;
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STRENGTHS ITEMS TO BE IMPROVED Interoperability between the European Adjust the Mechanism teams’ involvement in modules and the national teams; the framework of an emergency at Level of the teams’ know-how regarding European level (more focus on technical how the Union Civil Protection Mechanism support areas than on the coordination works field).
5. CONSULAR SUPPORT
a. Taking into account the articulation between ANEPC and the Ministry of Foreign Affairs’ (MNE) Consular Emergencies Office (GEC), it was decided to include in CASCADE´19, the consular support component. b. This decision led to the development of scenarios and injects that would affect a range of foreign nationals on Portuguese territory and thereby leading to the need to articulate with consular structures. c. Accordingly, a Consular Support Cell was set up at the PCNac level, which operated under the International Coordinator directly, and which had representatives from the embassies which, when invited by MNE, manifested their interest in taking part in CASCADE'19, namely, Austria, Belgium, Canada, France, Germany, Romania, Spain, United Kingdom and United States. d. This was a pioneering initiative that was very welcomed by the diplomatic and consular structures, and which allowed the deepening of the relations above referred raising awareness of the consular structures of the national emergency management procedures and also to fine-tune the procedures and identify room for improvement.
e. Consular support – Overall balance
STRENGTHS ITEMS TO BE IMPROVED Strengthening the relations between Develop scenarios with more injects in ANEPC and the diplomatic and consular order to make this participation even more structures; dynamic; Exchange of procedures among the entities Need to improve internal procedures, involved; especially with regard to communications
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STRENGTHS ITEMS TO BE IMPROVED Awareness raising of the diplomatic and and information flows by the consular consular structures of the constraints and structures. timings linked to managing more complex emergencies.
6. OBSERVER PROGRAMMES
a. The Cascade´19 exercise featured a joint observer programme for national and international observers. b. The National Observer Programme had a total of 13 observers from 10 national entities. c. The international Observer Programme had 35 observers from 25 countries (Austria; Azerbaijan; Byelorussia; Belgium; Bosnia and Herzegovina; Bulgaria; Croatia; Czech Republic; Finland; France; Georgia; Greece; Hungary; Italy; Jordan; Latvia; Lebanon; Malta; Morocco; the Netherlands; Norway; Romania; Serbia; Slovakia and Spain). d. During 3 days, the Observers had the opportunity to visit PCNAC in Sintra and the main scenarios in Lisbon, Évora and Aveiro. On the 4th day, they also had the chance to take part in the seminar on lessons learned (LIVEX Hot Wash Up). e. The Observers were accompanied by members of ANEPC during the entire Programme and were welcomed by operational personnel at the scenarios for a presentation briefing. f. A VIP Day was also held, in which representatives of 3 Consortium countries took part (Spain, Belgium and France).
g. Observer Programme – Overall balance
STRENGTHS ITEMS TO BE IMPROVED Professionalism shown by the travel agency The programme was too ambitious and it in managing transfers, booking travel and was not possible to visit all scenarios due to accommodation; lack of time. In future planning, the Preparation meetings between the travel programmes should take into account the agency and ANEPC; break times on the buses (for instance, Technical capacity and motivation of the stopping at a petrol station with 35 Support Team; participants means a 45-minute break, at Hotel chosen; least) and be adjusted accordingly;
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STRENGTHS ITEMS TO BE IMPROVED Hiring a transfer service was positive and the The distance between the scenarios caused travel agency, autonomously, was able to long periods of travelling. In future planning, manage all the transfers, including any last- less scenarios should be visited, and the minute changes; distance between them should be shorter; Sightseeing tour; The buses should offer excellent conditions Briefings given by the operational personnel overall (air conditioning, seats and interior) at the scenarios; and it would be convenient for the drivers Practical Information made available to the to know the routes beforehand; Observers; The operational personnel responsible for Exchange of correspondence between the briefings at the scenarios should be ANEPC and the observers in order to meet fluent in English and manage to explain all logistics requirements; succinctly the scenario under way; Food in general (meals and snacks given There should be one operational expert during travel); accompanying the entire Programme in Visibility material (vests, hats, explanatory order to answer any questions the booklets, etc.); Observers have related to operational Possibility of interaction between the aspects; National and International Observers as the The Programme shouldn’t last more than Programme was joint; 12h daily (8h/20h). WI-FI on the buses, a service provided by ANEPC.
Taking the above information into account, the following lessons learned are highlighted, which could be of use for future initiatives of the same kind:
1) The daily hours for an Observers Programme shouldn’t be more than 12 hours (suggested programme: from “8h00/20h00”); 2) To maintain the minimum quality standards, the ideal number of participants shouldn’t be more than 30; 3) There should be an operational expert during the entire programme, familiarized with all the technical and operational information on the scenarios, in order to pass information before arrival, and clarify any doubts that may arise during the travelling periods between the scenarios (Observer Programme Liaison Officer); 4) The initial briefing is vital to having a successful Observer Programme, so maximum attention should be given to this moment, once it will make all the difference;
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5) It is worth bearing in mind the distance between the scenarios when drafting the Programme (suggestion: travel time between scenarios should take no longer than 1 hour, 1 hour and a half). 6) It is worth bearing in mind all cultural aspects and possible special requirements that the participants may have, during (1) the draft of the programme; (2) decision regarding the scenarios´ visits; (3) decision regarding the types of meals; and (4) institutional gifts. 7) Invitations, especially VIP, must be sent as early as possible, preferably 2 months prior to the event. 8) It is important to have access to Wi-Fi on the buses so the observers can have access to the exercise website. 9) When drafting the programme, there should be a concern with ensuring that participants watch the foreign teams playing the exercise, especially the observers whose countries of origin teams are present. 10) Lastly, it is worth noting the importance of being fluent in English, both the support team and the operational personnel that present the briefings at the scenarios;
7. LOGISTICS
a. Logistics was one of the most complex components of the CASCADE'19 exercise, whether from the perspective of the team’s sustainability, whether in the support given to the populations. b. It was determined that ANEPC would take on the responsibility of ensuring logistical support to the exercise, namely with regard to refuelling and providing food for the operational personnel. A great part of this effort was indeed undertaken by ANEPC both at national level and also at district levels where the scenarios were held. c. Nevertheless, all participating entities also developed significant logistics planning in order to ensure their sustained participation in CASCADE'19. d. Aware that logistics is in fact one of the most critical aspects in major operations, ANEPC sought early on to plan this as thoroughly as possible, especially to avoid any serious bottlenecks that could easily jeopardize operational conduct and, as a consequence, the exercise itself. e. In total, approximately 24 members of ANEPC and CDOS were allocated to these planning and implementation tasks.
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f. Logistics – Overall balance
STRENGTHS ITEMS TO BE IMPROVED Technical qualities and motivation of the Need to increase the capabilities within people in the exercise logistics – public ANEPC for the transport of goods, servants, logistics offices, drivers and equipment and mechanical loads; members of the FEPC Logistics support The cooling system in the ANEPC campaign brigade; tents (need to purchase roofs shade and air- Internal and external coordination conditioning systems); (institutional). Redundancy of the power supply systems for CETAC; Need to purchase or rent campaign bathrooms to support CETAC.
8. IT AND COMMUNICATION SYSTEMS
a. In any civil protection theatre of operations, and in any context where it is necessary to manage high number of resources, the use of Information and Communication Technology (ICT) is of utmost importance. The CASCADE’19 exercise was no exception. b. ANEPC took on the responsibility of ensuring ICT support for the radio communications component for all participants and full support of all the technological components of the National Command Post (PCNAC), the Bases of Operations (BoO), the structure implemented by ANEPC and to ensure its connection with the remaining partners. c. In this sense, it was necessary to conduct a series of activities, namely: i. Surveying the electric radio coverage of all the sites of action, which implicated the construction of a survey and a coverage analysis (using materials already in existence in ANEPC, and including scenarios visits). ii. Establishing partnerships at lower costs but with great availability for the supply of communications services at the BoO (one of them was set-up in the Ovar); iii. Survey of the number of radios that could be repaired by the radio area and existing spares. A small number of components was purchased and we were able to supply 150 TETRA – SIRESP devices using internal repairs only;
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iv. An R&DA protocol was set up with a drone manufacturer – DJI, which resulted in a good logistical support, at no extra cost, and training on how to operate the drones. The National Civil Aviation Authority (ANAC) was informed by ANEPC that the needed requirements to operate in restricted environments were assured, namely, in the major scenario of the Aveiro Port industrial and port area, with great success; v. Assess the capacities of the ICT resources for the mobile support means, to national operations of this scale. Wherever appropriate, some repairs were carried out and the cell reception modems were replaced; d. Cloud storage services were implemented and the bases for collaborative solutions were created (more than 10 accounts with storage – email – remote presence – chat – online document sharing). However, the capacity to implement a more encompassing and effective collaborative solution was lacking, that would allow cloud processing (servers), a videoconferencing system (services and equipment) and integrated data/whiteboard (services and equipment) fulfilling a Common Picture concept.
e. Communication Systems: Overall balance
STRENGTHS ITEMS TO BE IMPROVED Technical capabilities and professionalism by Creation of a personal ID for players, for ANEPC team in charge; instance through a smart card, capable of Capacity for respond, coordinate and interacting automatically with the systems, for support, by the team in charge, when faced example, controlling meal tickets, access with ANEPC needs; control, etc. Pilot implementation of the drone Some of the requests did not follow the right operation capability in supporting decision- workflow and so it was impossible to control making, sending out information in real time / record / process all requests/needs in the and acting according to aviation rules, most suitable way; carrying out operations in high risk and Creation of standard kits per type of restricted areas, causing a positive impact. need/incident or by modularization, ensuring High speed and availability internet a swifter and more systematic response. connection service at the Ovar Base of Need to include the creation of operation Operations and a lower capacity, yet and training standards and the supply of likewise resilient, at the Vendas Novas Base individual equipment, according to the of Operations and PCNAC; ANEPC institutional image; Capacity-building for a tactical team with resources to implement a communication node with all the necessary ICT resources
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STRENGTHS ITEMS TO BE IMPROVED Implementation of capabilities to support (communications, security, store-and- command and control, backed by cloud forward and gateways) capable of operating sharing. in any scenario, resorting to computing and concentration/distribution equipment and satellite/radio/LTE, without overlooking the need to implement cloud information system solutions; Consider the creation of a tactical technological cell, which should contain the means to implement the ICT capabilities where they are necessary; Technological support light tactic vehicles with the means to distribute/pick up the signals from Voice and Data and networks and image/environment, with its own mast and power sources; Restructuring ANEPC private REPC radio network in order to create a more resilient and integrative structure that is capable of responding to a scenario as the one tested.
9. IMAGE AND COMMUNICATION
a. The exercise’s Image and Communication component was planned and executed at different levels: visual identity, digital communication platforms, materials to support the exercise, photo and video records, and media relations. b. As regards the visual identity, a strong and appealing image was created for the exercise, which was consensually accepted by participants and the public alike, applied in all communication supports. c. As for the digital platforms, the exercise was advertised on ANEPC communication platforms – website and social media. A dedicated website was developed in both Portuguese and English (www.cascade19.pt), with public detailed information on the organization, the planning and the participating entities, containing an image gallery and a drive for sharing documents. Information was made available on the 24 main scenarios right from the start of the exercise. A Twitter account called CASCADE_2019 was also
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created close to the start of the exercise, which was fed with multiple daily posts and linked to ANEPC Facebook page, which has around 170,000 followers. d. Several materials and products were created and produced to support the exercise: identification badges, lanyards and clothing (vests with job – EXCON, Site Manager, Security Officer, Public Relations Officer, Observer, Evaluator, Media, Staff – polo shirts and caps for the staff), bags and writing materials, reusable water bottles and portable ashtrays, forms/templates, the exercise operating directive and a pocket guide in two versions – Portuguese and English languages – and signs for RDC and the Operations Bases. e. When designing the needs, highlight was given to the operations’ visual documentation, and images (photos and video) were taken during the entire exercise for future memory. A 5-minute video to be disclosed at national and international level is being edited and the archived material will allow the production of educational and promotional videos at a later stage. f. As far as media relations went, a communication plan was defined involving entities from the national and district levels, under which objectives were set and guidelines established for the decentralized promotion/disclosure of the initiative by the CDOS, Civil Protection Agents, Municipal Civil Protection Services, Parishes, Firefighter brigades and participating entities. g. The first press conference to present the exercise was held on 26 October 2018, followed by other public events for its promotion, such as Segurex 2019 (Safety and Security trade fair). A press conference was held on 21 May 2019 to define the rules for relating with the media in PCNAC, accreditation, press conferences, briefings, interviews, operational, political and institutional statements. h. Partnerships were also set up with national media outlets, such as RTP/Antena1 and Rádio Renascença and radio spots were produced. At district level, in the districts where the exercise took place, regional/local media outlets were identified as privileged interlocutors for dissemination. i. In total, more than 500 news items on CASCADE’19 were published by the local and national media.
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h. Image and communication – Overall Balance:
STRENGTHS ITEMS TO BE IMPROVED Strengthen the number of members of the The integration of a member of the communication team in order to allow more Communication team in the Steering and better information to be disseminated Committee; through social media locally and centrally and Timely planning; in a timely manner; Strong and appealing visual identity; Develop website lodging and configurations to Website with valuable information; avoid hacking, as happened; Suitable supporting material, distributed in Collaborate in defining the methodology to fill time; out the scenario files, so that the information Many videos and photos taken; in them is complete and standardized; Excellent media coverage. Foster greater intervention with the communication departments of the host entities, co-funders and participants; Include the media outlets as players in future exercises, in order to test the communication procedures in the event of a crisis/emergency.
10. EVALUATION
a. The CASCADE'19 evaluation component was coordinated by the Emergency and Civil Protection Services Inspectorate (ISEPC) and 5 teams of evaluators (EQAV) were in charge, which monitored the exercise’s entire operational component. b. These teams had a total of 16 members, including European and national experts. One of the teams monitored the national component of the exercise and the remaining 4 teams monitored the district components. c. The table below shows the list of members of the EQAV.
EQAV PT EXPERTS EU EXPERTS 3 ANEPC members NATIONAL 1 Expert Germany 1 ENB members AVEIRO 2 ANEPC members 1 Expert Malta DISTRICT LISBON 2 ANEPC members 1 Expert Italy DISTRICT
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EQAV PT EXPERTS EU EXPERTS SETÚBAL 1 ANEPC member 1 Expert Romania DISTRICT 1 ENB member ÉVORA 2 ANEPC members 1 Expert Spain DISTRICT
d. The work of these five teams was guided by an evaluation matrix developed by ANEPC and ENB workers through the exercise’s planning phase and was shared with the EU experts as soon as they joined the EQAV. e. These experts arrived in Portugal on May, 28th and were given a first briefing at ANEPC, that offered them an institutional and operational framework, as well as a preparatory meeting in order to coordinate all the interventions and ensure that there was a common thread for their evaluation. f. This evaluation matrix, which is too large to fit in this report, aimed to cover the following main areas (it was based on the objectives set at DON and which regulated the exercise).
SUMMARY OF THE OBJECTIVES EVALUATED
At the TTX stage: Test the activation of the Civil Protection and Emergency Plans at the various levels; Practice the deployment of European teams through the DG-ECHO (EC) ERCC (European Response Coordination Centre); Test the functioning of the CNEPC/CDOS in a civil protection and emergency event.
At the LIVEX stage: Test the National Civil Protection and Emergency Plan (PNEPC); Test the District Civil Protection and Emergency Plans (PDEPC) for the districts engaged in the exercise; Test the Municipal Civil Protection and Emergency Plans (PMEPC) for the municipalities directly engaged in the exercise; Test the European teams’ deployment procedures through the DG-ECHO (EC) ERCC; Practice the deployment of European teams through the DG-ECHO (EC) ERCC; Validate the national procedures on Host Nation Support, contributing to the development of specific guidelines on this matter;
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SUMMARY OF THE OBJECTIVES EVALUATED Contribute to the ongoing efforts to improve response capacity under the Union Civil Protection Mechanism framework; Explore and test the EUCPT hosting in the event of a national emergency and the implementation of the international cell; Explore and test the procedures for receiving European modules whether by air or by land; Test the operational intervention and integration of the Mechanism Coordination teams; Test and promote the procedures associated with the European modules in the several theatres of operations; Test the CNEPC/CDOS functioning in the event of a civil protection and emergency situation; Foster the implementation and organization of an Operational Command Post (PCO) in a civil protection and emergency situation; Promote and validate the way the emergency teams act in a complex emergency situation, under the coordination and command of a command post; Test the joint intervention procedures between national teams with different powers; Test the interoperability between the different European teams and modules in a complex scenario; Test and practice the procedures associated with the planning of a highly complex exercise; Evaluate the exercises and scenarios; Evaluate the planning for carrying out the exercises.
g. Evaluation – Overall balance
STRENGTHS ITEMS TO BE IMPROVED The ambition and realism of the exercise with Improving the monitoring of the exercise’s a large range of situations and capabilities to evolution in the different scenarios by be tested; EXCOM, avoiding situations where the teams The training of the different emergency plans arrived either too early or too late; activation – national, district and municipal; Adjusting the scenarios’ difficulties to the time Strong willingness shown by all the players, available for the activities carried out; with a high rate of participation and The need to implement the function of a commitment by all entities involved in solving safety officer at all the different scenarios;
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STRENGTHS ITEMS TO BE IMPROVED the emergencies that were injected The need to improve the training of handing throughout the exercise. over the command at the PCO, a complex Good demonstration of the technical and difficult task that is critical, as shown in capabilities of the operational teams (national the real theatres of operations; and international) taking part and cooperating The need to ensure a higher lack of actively in solving the problems that were knowledge of the occurrences by those who raised in the scenarios, showing determined play, which can be achieved through the willingness and cohesion. creation of different document files, Setting up mixed teams (national and distributed according to each player’s international) in some scenarios that worked type/level of participation; together; The need to increase the level of training Progressive and ongoing improvement of the through more exercises, starting with smaller Command Post, which started off slow and scale ones (municipal, district and inter- confusing, forgetting the teachings of TTX, yet district), combining the national level and the it ended on a noted performance, with all of international assistance component at a later its members knowing their roles and playing time. them out in order to achieve their objectives; The need to improve the exercise planning Good organization of the district and timings, with an earlier validation of the municipal decision centres. scenarios.
h. Overall, it is concluded that the objectives described in f) were reached, with lessons learned to be put into practice in upcoming exercises, allowing for improvement and innovation of the existing guidelines and also revealing that the training and simulation component are crucial for continuous improvement.
B. SECTOR REPORTS
a. As established in DON CASCADE'19, the external entities that took part in the exercise drafted their respective Sector Reports (RELSEC). ANEPC received 19 RELSEC. b. The main first impressions that the European teams had, which includes EUCPT, were collected at the LIVEX Hot Wash up held immediately following ENDEX, on 31 May. After a careful analysis of the received reports, the following main aspects are highlighted in the next table:
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS CASCADE´19 planning and organization; Using IT tools to circulate/act as a Make available a “Common Operational Strong commitment and engagement by repository of information and Picture” at the PCNac; APA the participating entities; communications, as well as manage the Improve the information flow between the Portuguese Good inter-institutional articulation and information associated so as to process different levels (national -> district -> Environment cooperation with the different liaison content quicker and try to dematerialize municipal) and between the different players; Agency officers at the PCNac and the PCDis; the processes; Using IT tools to circulate information, Quick response/articulation of the APA Injects with more detailed information; allowing it to be selected according to the staff on the ground and in the PCDis with In terms of the facilities covered by the powers and competences of each body, the the PCNac; PAG regime, the information requested recording and sharing of specific information, APA’s capacity and availability to respond from APA that ANEPC or the SMPC do managing information on the assessment of to the numerous requests brought on by not hold must include the following the damage occurred on the ground and about the Exercise; whenever possible: facility’s name and what is in fact going on on-site, etc.; APA opportunity to watch technical action location, hazardous substances involved, Having in-class clarification sessions and procedures on the ground, devices and reservoirs in question, estimate of the exercises (Table Top Exercises, TTX) with the equipment associated with the protection amounts released and the weather district and national commands on the of water masses quality and their cleaning; conditions on-site, parameters that will competences and powers of the APA (and APA’s capacity and availability to simulate influence the consequences of a given perhaps other entities also) and the the times for arrival of a toxic cloud and accident; means/times for deployment; the potential for placing material on the In a real emergency context, we question Injects according to the weather and seismic ground, at an indicative level, using for this the relevance of some of the information warnings issued; purpose the models validated for requested, such as whether the facility is Need to define legal powers for events radiological components; licensed, if it has an approved safety report involving the dispersal of chemical and In terms of radiological events, we note or if it has conducted drills and exercises; biological components. the good articulation on the ground and Think about developing exercises that are APA’s capabilities in terms of human geared towards more specific issues, and technical resources, both for intervening of the TTX type; on the ground and supporting decision- Integration of other national entities (e.g. making at the various levels of command. Nature and Forests Conservation Institute - ICNF); Improve the articulation between the entities when alerting the population; Envisage the possibility of observers following the scenario development from the start of the emergency intervention, so
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS they can keep abreast of the associated operations; Limit the time spent travelling, choosing instead to visit scenarios that are closer to the starting point; Envisage a specific and restricted area for the observers at a distance that allows them to assess the events/operations under way; For radiological events, the articulation between the chains of district and national command should be improved to prevent doubling requests made to operatives on the ground. This articulation should likewise ensure that if the APA representatives are not in the PCO, the information will flow in time to the next level and the APA intervention will be requested in a timely manner. The objectives set were partially achieved, Greater involvement of the Scout Regions CNE is an association made up of volunteers given that there were some gaps identified in the planning phase for an exercise of this and, just like the various volunteering CNE in the communication channels with some nature, despite its features and objectives; movements, for it to be able to give a quicker National Scouts regions, although for the majority, even in Greater commitment by the Civil and more effective response, it will be Association TTX, communication was swift and Protection area from the Scout Regions in necessary to have decisions of a political effective; streamlining and quality of disclosing the nature that allow for more active participation The Évora region’s commitment and recommendations and procedures in a by the team members without an impact on organizational capabilities in its catastrophe, as set in the document on work and wages. participation in the LIVEX regime; EAR. Communication between the Liaison
Officer for the CASCADE National Command post and the CNE National Command post and between it and the regions.
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Joint work between the entities – Existing database in SADO is outdated; Placing resources in SADO or negotiating a Whether at the level of the command Only a few means were duly recorded on joint proposal – With the Portuguese Red CVP post, CPX exercises and LIVEX exercises, SADO and it’s impossible to maintain Cross participating more in theatres of Portuguese Red we must always acknowledge the work “real” monitoring of who was commanding operations, it is now indispensable to have a Cross between the different agents to solidify the relief operations; record of the resources available deployed to operating procedures and understanding The information given wasn’t concentrated the theatres of operations. It would be a to have a more coordinated response to and wasn’t very precise. When the means valuable aid for the Commander in charge to the challenges involved in providing relief were deployed to the site, and to inform have access to a COP - Common Operational to the populations; the agents of the occurrences, we used Picture - that is as complete as possible. And Type of occurrences at the scenarios – communication channels that quickly if this is valid for situations that are focusing especially on the LIVEX scenarios, became overloaded, not very precise and exceptional, this is also a need at district level, work methods were tested several times which operationally didn’t offer exact as stated by several CODIS; in different environments and scenarios. information; Greater knowledge of the institution – It This enables a more encompassing Definition of chains of command and would be beneficial for ANEPC to know evaluation of the points to be improved responsibility – The transmission of everything the Portuguese Red Cross can and positive areas in terms of the existing information between the Municipal, offer at operational level. Greater exchange of training, capacity for response and District and national Command posts was information and fostering joint activities will technical means deployed; done in an inconsistent way and is one of be extremely beneficial for a guideline on the Opportunity to demonstrate different the items to be improved together with gaps to fill in the relief operations that are responses – With such a great variety of the agents. carried out jointly. There were opportunities, occurrences, this exercise was an especially at a logistics level, where the excellent vehicle to train the different Portuguese Red Cross stood out and where responses where the Portuguese Red it’s still one of the main allies when it comes Cross can play a part. Methods applied by to an emergency; IFRC were tested; Exchange in training – Seeing that all the Synergy and collaboration with NAPSE operatives face common dangers, and as an (Emergency Psychological and Support agent that collaborated with Civil Protection, Centre) – whether at the level of setting the Portuguese Red Cross should be part of up the zones for population concentration the training courses and initiatives relevant to and support, whether in terms of the its daily activity, so that its effects can be response and integration of Portuguese leveraged for a convenient response to the Red Cross human resources, the work problem at hand; with this centre was in synergy, Articulation in the response to ZCAP’S – complementary and in perfect articulation Given the Red Cross’s capacity to act, action and synch with the desired intervention of a multidisciplinary nature, and taking into
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS goals. It was also useful to put into practice account the various needs for the proper operating procedures in order to functioning of a ZCAP, partnerships should be standardise response and decrease the developed, based on the goal of strengthening deployment times in real situations. Civil Protection’s response in the field of emergency relocation. Well organized, suitable support logistics; Lack of possibility to follow all the Need for greater preparation for weather Interesting cases and suited to the scenarios; conditions that are different to the ones DGAV response by the institutions; Many text and email messages sent, hard to during the exercise (cold, rainy weather Directorate- Possibility of having direct communication manage; requires other procedures); General for with the other entities in the National Weak internet signal at the PCNac, space Tighten contacts with CM, MVM, SEPNA, Food and Command Post; was too small for the number of veterinary hospitals and protection Veterinary Briefings that offered a bird’s eye view of institutions – crowded. associations in order to prepare for the exercise. emergencies relating to the collection, basic care and MV treatments of animals in the event of a catastrophe. Possibility to test inputs from the health Streamline communication and the Need to strengthen public health material and sector in the context of different exchange of data in an emergency between human resources in emergencies that affect DGS scenarios; the local health authorities, coordinating human health; Directorate- Opportunity to simulate real events and health authorities, Regional Delegates and Revisit the SICO legal framework with the General for test readiness capacity; National Authority; possibility of having electronic death Health Opportunity to test the “precautionary Clarification of the tasks and verification; principle” in response, seeking to minimize responsibilities of the different entities and Work with other partners to identify a the impact of the different emergencies; sectors in CBRN situations; common solution for managing the morgue in Opportunity to get to know the work of Reinforce the availability of material and a catastrophe; the other entities in the different logistical resources, namely electronic Review the appointment criteria for members committees and their representatives communications equipment, individual of the health sector in the different Civil (networking); protective gear and transportation Protection committees; Interaction between the various entities at equipment; Consider reviewing with ANEPC the tasks and the Command Post level; Difficulty in replacing the teams on the attributions of public health in the National Possibility to draft joint products at the ground; Civil Protection and Emergency Plan; Command Post level; Reactivate the relevance of the health Consider including more frequent drills and Articulation between the local, regional sector’s representation by health exercises of different types, including table- and national levels of the health authorities authorities in the different Civil Protection top exercises to train and reinforce network; committees;
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Good interpersonal relations between Strengthen the relevance of public health in preparedness in the event of a public health those involved at the various levels; all the stages of the emergency preparation emergency. Professionalism, respect and solidarity and response cycles (from the preliminary between participants at all levels; phase up to response and recovery); Participant adhesion and capacity for Revisit the legal framework, tasks, duties engagement; and articulation between the different Motivation and commitment to work as a entities in managing the morgue in a team. national catastrophe setting; Consider the possibility of the integrated system for Death Certificates (SICO) include verification of death; Draft and/or update flow charts for the intra- and inter-sector information circuit; Revisit existing protocols for clarification and updating procedures. Mobilizing several entities and their Difficulty in defining the ideal scenario for In a catastrophe, as that simulated in the commitment during the exercise; affecting the grid (following a quake) and exercise context, the human and material EDP Quick access to all the entities, fruit of the the available means. The scenario we resources available will certainly fall short and Energy Command Post’s organization; created could be contrary to the exercise the various entities will compete to use them. company Good interaction between the EDP scenario; This fact, plus the high number of needs Distribuição in-house teams; Impossible to process all the information compared to the existing resources, means Opportunity for training; made available at the Command Posts, that priorities will need to be defined by the Opportunity to interact with several Civil which was often times excessive and not body coordinating the entire emergency Protection agents; really relevant to the activities unfolding; response. Realism in the operational action, namely not to mention that it did not refer to any Analyze the response capacity of the various the use of communications means; level of priority, which made it difficult to entities in a scenario of technological failure Methodology adopted in the exercises, identify urgent/emergency situations; i.e., without being able to communicate with simulation of the events distributed There needs to be a platform where (mobile and landline). In the current context, among the various entities present relevant graphic/visual information shared a lot of the various entities’ response capacity throughout the respective days; by the Command Posts is available (e.g. is based on IT tools and the capacity to most affected sites, presence/involvement communicate is an extremely relevant factor. of means at those sites, roads affected / We feel that in the following opportunities it zones off-limits, etc.) in addition to the will be beneficial to increase the exercise’s information the entities can share with the complexity, strengthening the involvement of
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS remainder and which could be relevant for experts from the various service operators everyone (e.g. zones with power cuts / essential to society when planning an exercise zones without communications, etc.); and building the scenarios. This includes Greater number of briefings at the PCNac internal controllers that will help to define the and PCDis and the possibility of having detail of the vents that affect its operation. sector briefings (e.g.: relief/health care, In the concrete case of the Distribution Grid infrastructure/grids, etc.); Operator, EDP Distribuição’s participation In the injects throughout the exercise no will demand the prior preparation of the information was given on the impact or the various scenarios with several scopes, at the need for Civil Protection response to the level of the impact it would have on emergency; infrastructure, as well as on the available Lack of reference made to immediate human and material resources. The action to be carried out by the entities interdependence between services (e.g.: present on the ground when some electricity, communications, water, etc.) has warnings were issued (e.g.: tsunami an impact on the response allocation of the warning, chemical cloud on its way to various operators and should also be taken Barreiro). What should be done? What is into consideration. the impact zone? The responses by the various entities (actors) weren’t carried out in an integrated way and were given individually (not taking into account the interdependence between the various infrastructures). Excellent support given by the military The Operational Commands (EMGFA and Greater involvement of the FFAA in the units directly involved in the exercise – Branches) did not train the activation, exercises’ planning stage; FFAA Sintra, Ovar and Vendas Novas; readiness and deployment of the forces More time for planning and involving the FFAA Armed Forces Logistical support given by ANEPC to the procedures, due to the activation mode in the earlier stages; exercise; selected - SMS; Implementation of a digital platform that Very positive response by the Procedures associated to the information allows for a Common Operational Picture; georeferencing system tested by the s flows; ANEPC drafting an annual exercise FFAA; Connections between the FFAA and programme with themed and sequential Overall response capacity by the FFAA and ANEPC communications systems. themes; all the means deployed during the exercise.
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Using Figo Maduro airbase for training HNS procedures, involving all the entities who have responsibilities in this field. Coordination and integration of the Integration of the IT systems and Coordination meetings at national level every various GNR powers with the national platforms; time the exercise is at national level for there apparatus; Realistic and thorough acceptance of the to be synchronization and we are able to GNR Good understanding with and between the different tasks and competences under law forecast the greater number of contingencies National Guard entities that took part; by the different entities; the exercise may bring, and which are lessons Good knowledge of procedures according Preparedness of some Municipal for a real situation; to the requirements; Command Posts. We felt that the Inform the population of the risks and Capacity to test the institutions’ municipal civil protection level could be proactive measures to take, through capabilities in LIVEX mode; better prepared for these situations, awareness raising, pamphlets or signs that are Develop the reaction capacities of the through training courses and local easily recognized, where special attention is GNR subunits and entities that were in the exercises, where the relations between the given to the prophylactic measures, as well as exercise (subunits’ response to requests, district and municipal level could also be the most suitable procedures to undertake; capacity of the situation centres to fostered; Hold similar annual exercises involving the respond to the requests made both by the Articulation at the different levels, various entities, fostering streamlining in subunits and the chain of command); particularly between the district and procedures/know-how to apply in a real Once the mechanisms to mitigate the municipal level, which ended up leading to situation; constraints to the normal social some “detours” to the previously lined up Improvement of the sound warning signs for functioning were safeguarded, such as planning; incidents in damns and their efficient isolating the sites of operational action, the Lack of IT resources at the District and disclosure to the population; distribution of the “no play” members in Municipal Command Post, which allow Using the available IT resources for better strategic sites, to manage safety, prior visualization of the orthophotomap of the identification of the sites where the accidents warnings of what was about to happen in zone where the incident is occurring. are happening, namely through updated order to keep the people informed and Visualizing this orthophotomap enables us orthophotomaps, where all the access routes also the existence of suitable signage. to identify in a clearer way natural or and possible obstacles are visible; artificial barriers, better access and other Strengthening the telecommunications items that are essential in decision-making network’s capacity for response to allow for and to ensure better efficacy in relief and more intensive use and decrease the zones assistance to victims, since it would enable that don’t have any signal coverage; us to allocate the resources that are Use of unmanned vehicles in rescue strictly necessary and manage the incident operations so that rescuing people can be with greater clarity; done in a safer way;
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Companies and public entities involved Improvement in the proficiency of the improve the activities linked to the Municipal Command Posts through suitable procedures to be taken, so that civil training; servants and workers can be closer to the Implementation of a mechanism that will real situations. enable this type of exercise to start without knowing the date in which it will be triggered, allowing for a more thorough evaluation of the readiness of the agents involved, as well as the efficacy of their response. Overall, the exercise allowed us to test More time exclusively for preparing the Strengthen knowledge of the procedures specific procedures at the morgue in scenarios where intervention is called for; associated with forensics in the civil INMLCF situations that involved various entities and More attention given by the entities to the protection structures that are not centralized, National in extreme scenarios that included CBRN compliance of procedures in the field of namely the district and municipal level; Medical risks; forensics, or else the entire intervention In order to establish the criteria for activating Examiner and Being with the different entities involved in will be compromised. the ERAVm activation criteria in a clear and Forensic these scenarios enabled becoming closer unequivocal manner, we suggest organizing Science to them and getting to know the sector exercises for the morgue, such as Institute specificities of each one, allowing for easier LIVEX, with the full participation by INMLCF, articulation in real situations in the future; as well as the remaining entities, involved, The exercise also allowed us to spend time namely MP, PJ, GNR, PSP, DGAM and also with other international entities, leading to INEM and DGS. the exchange of ideas and know-how; The scenarios with CBRN risk were an opportunity to test the suitability of the personal protective gear bought by INMLCF, enabling us to identify any needs for improvement. Scale/complexity of the series of exercises The impossibility of OFLIG IP being Even with the presence (IP) assured at the IP in CASCADE’19; present full-time at PCDIS in cases of this national level (PCNAC), assess the possibility Infrastructures Interconnection between the various magnitude; of (remote) solving of the issues related to the company entities in attendance; Some disarticulation at the National and IP (via mobile phone /SIRESP); Capacity for mobilization and commitment District levels (occasional); Assess, with regard to identifying occurrences of the entities that intervened; (road or rail) the need to implement
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS LIVEX exercises: Barreiro (CDOS Setúbal) As presence at the municipal level is not improvements in the km referencing of the with the involvement of hazardous freight critical, it may be worth assessing an infrastructures; (rail); Aveiro (CDOS Aveiro) with an update of the contact lists. Update the contacts (OFLIG) at the municipal operation to rescue a train crew on a level. flyover; Alenquer (CDOS Lisbon) with the involvement of hazardous cargo (road). Great spirit of cooperation among the The weather conditions were forced, i.e. Improve the articulation between IPMA and teams from the different entities who the weather development was influenced the entities that use the weather reports as intervened in the exercise and present in by the prior scheduling of the scenarios their source product, so as to monitor the IPMA the PCNAC; which sometimes didn’t allow the weather situation and how it will probably Portuguese Experience of a broad vision of the Operational Weather Officer to play a evolve and test the responses to the possible Institute for coordination and management of a credible “game”; scenarios caused by adverse weather Sea and catastrophe and its relief; Articulation with some institutions could conditions; Atmosphere Good coordination between IPMA and be improved, namely with APA, where the In this sense, in future real or simulated ANEPC given the weather event monitoring of the registered and forecast scenarios, sector briefings with certain entities predefined for the Exercise; rainfall in the river basins and respective should be encouraged, so that more suitable Efficacy of the means to disseminate impact on the water flow would be responses are obtained through a more geophysical information (all the planned important to assess; encompassing vision of the situation; messages were generated and sent on the Flaw when signalling “EXERCISE” in the Improve the formatting of the tsunami fly, as though in a real operational first message opening the event (28 May at messages, particularly improve their legibility; situation); 12:30, the problem was solved Include the CDOS in the recipient list for the Use of shakemaps, an essential tool in immediately); tsunami messages as a way of reducing the assessing seismic intensity at the regional Quality of the faxes sent (tsunami times for the warnings to arrive at their end scale; messages). recipients. The way the tsunami scenarios were conducted, with a full simulation of the entire chain: acquisition, analysis and dissemination. IPST The learnings associated with participating Need to have a briefing for health, namely NTR Portuguese in an exercise of this scale, with the considering the sector’s specificities, to Institute for possibility of evaluating the internal and better define and manage priorities; Blood and external mechanisms for response capacity Drafting harmonized internal emergency Transplantation of the IPST – activation of the Leadership plans for the institute’s physical structures; and Coordination Internal Structure;
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Interoperability and articulation between Need to articulate PNEPC with the the different liaison officers of the different emergency plans for the Blood and entities that took part, as well as the Transfusion Medicine Services; National Transfusion Network; Need to articulate with DGS as the Identification of the vulnerabilities competent authority; associated with the chain process in Improve articulation between the different Transfusion Medicine when assessing the instruments for planning in civil protection risk associated with events with an impact with the specific plans for the different on the institutional mission. entities. IRN For the first time, IRN had the chance to Create a NecPro in a future exercise to NTR Institute for witness a live exercise, which enables us to test IRN’s response capacity. Records and have an idea of the problems that may arise Notaries in the future. The cohesion, exchange of information Fine-tune the detail and precision of the Define a communications/training plan for the and tasks by the working team of the information on the events in the districts District Civil Protection Commands on ISS Emergency Psychological and Social in order to better support decision-making support to the populations in general and in Social Security Support Centre (NCAPSE) at the PCNAC in allocating means and resources; particular on NCAPSE, DAPCE, the ZCAP Institute – ANEPC, Portuguese Red Cross and Difficulty in obtaining permission by the and the ERAP; National Scout Corps; COS to implemented the Early Define guidelines with regard to support to Deepening of the understanding of the Psychosocial Evaluation Teams (ERAP) in the populations and respective management other entities also engaged in psychosocial some scenarios; and organization of the ZCAP. support, namely the Armed Forces, INEM, Management and articulation with the DGS and the Consular Emergency Office other entities present in the ZCAP, at the Ministry of Foreign Affairs; clarifying the coordination responsibilities The quick response and involvement of all of ISS, I.P.; the ISS, I.P. teams in close articulation with Adjust the ratio of people the EAPS/ DNB in the Exercise; sent/entities/operatives involved in the Possibility to test the operating ZCAP; procedures and intra- and inter- Need to develop disclosure/training in the institutional articulation, as envisaged in municipalities and other entities with the Protocol for Social Security Emergency competence in the matter of providing Intervention in Exceptional scenarios; psychosocial support to the populations on Cooperation and promotion of synergies NCAPSE, DAPCE, the ZCAP and the with the national coordination of the EAPS ERAP.
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS (DSSES/DNB), which worked together in 5 different scenarios in the 4 districts; Integrated action by the various entities (DSSES/DNB, Portuguese Red Cross, National Scout Association, Municipality, Navy, Directorate-General for Food and Veterinary and Borders and Immigration Agency) in the scenario for the Viana do Alentejo District ZCAP. The pioneering involvement of the Create more dynamic occurrences for the Continue to foster the involvement of MNE (GEC) embassies in an exercise of this nature; embassy representatives, allowing them to embassies in future exercises. Ministry of The work in network that the exercise be more involved. Foreign Affairs allowed to be developed; – Consular The deepening of contacts between the Emergency embassy representatives and the national Office authorities involved in managing emergencies. The presence of a judge, in person, at the Improve articulation between the civil MP National Command Post allowed for good protection agents in question and the Public articulation with the remaining judges appointed as points of contact in the Prosecution agents/entities; various legal districts/courts; Office In the concrete situations where incidents Raise awareness of the public prosecution with dead bodies were generically office judges of the need to be reachable at envisaged, with police officers on the all times; ground, namely P.J., and INML, it was Raise the judges’ awareness to the need of possible to have good articulation and being physically at their respective district compliance with the proper procedures. or municipal command posts, in case the This was the case with the incident civil protection and emergency plans are involving the ferry in Aveiro/Ílhavo, in activated; Lisbon/Alenquer the accident with the Appoint a judge in case a civil protection vehicle transporting hazardous cargo and and emergency plan is activated, with in Évora/Montemor-o-Novo the incident coordination duties and articulation with in a mine. the district and municipal levels;
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Improve the procedures in the morgue field. Raise awareness of the agents in question to the need to set up the ERAVm, who should have the capacity to travel to the ground at once and act in an articulated manner. Excellent internal articulation in the Some of the scenarios had few injects, NTR MUSAR module, namely considering that there are which meant the Command of the module PENICHE people from different CB and other had to create difficulties for its operatives; organizations; Lengthy activation times; The use of IT systems to support decision- The use of different operating procedures making that are specific for this type of between the national teams and the ones operation and which are already largely that have been preparing under used by international teams. international action protocols, such s INSARAG. Excellent collaboration between PSP and There was no final coordination meeting NTR PSP CNEPC/Exercise Host; with the entities directly involved (of Public Security Visiting some of the sites/scenarios before national scope) which could handle some Police was of added value; of the issues verified during the Collaboration and interconnection “execution”; between the entities (at the PCnac); 28th – too much information (and too Meals and support. dispersed) about natural events (quakes, tsunami and weather). It became unmanageable and thereby not much use. It would be better to share the most pertinent information only; 30th – Inject of 4 table top (security) events simultaneously and with minimum information or the possibility of obtaining information to duly solve the matter; A cut in the GSM network (table top) wasn’t followed up with an update SMS (these messages continued to arrive);
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS Need to have a dashboard (projected) where all the active incidents show up, the resources (by body and specialty) on site (and date and time of arrival and demobilization) – Something like the matrix that was sent to the entities, yet dynamic; Definition of priorities for action, considering that in real scenarios the resources will be scare to solve all the needs; Security events or those that led to security: the possibility of the management being passed on to the Secretary-General of the Internal Security System wasn’t raised (upon determination of the PM), as envisaged in article 19(1) of the Law on Internal Security. This is a possibility that must be equated; Some issues with wi-fi connectivity; Existence of a board containing all the scenarios and constant updating of the resources/capacities on the ground. SRPCB Exercise organization and planning; The conditions at the accommodation NTR AZORES The role played by the liaison officer; should be reviews (smells); Regional Civil Missions assigned; Police escorts for the roads with greater Protection and Logistic support to operation; traffic; Firefighting Scenario prepping; Waiting times to get inside the Theatres of Service of the Evolution in the team’s performance Operations were sometimes too long; Azores throughout the exercise. Interoperability with regard to some specific equipment; Operational briefing upon arrival at the PCO – could be improved.
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BODY MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED PROPOSALS The planning meetings organized by Better articulation between the National ANEPC were enough for the players in the and Municipal level, since it was shown that SRPC exercise to be enlightened as to their the organization and coordination MADEIRA participation, without ever revealing the belonged to the national level, however, in Regional Civil TO that would be deployed; the TO the situations unfolded at the local Protection Opportunity to share technical documents level; Service of with other forces assigned to each TO; Great time lag between when a module Madeira Good welcome of the corporations that that should be a reinforcement of the TO worked with the Madeira Module, as well was activated and the start of the Exercise, as with the Municipal Civil Protection since the module arrived at scenarios that Services of the areas of intervention; hadn’t yet been initiated. Accommodation and food and Logistics, at the Vendas Novas BoO, ensured to the entire Module that travelled from the Madeira Autonomous Region.
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C. EVALUATION OF THE REGIONAL AND EUROPEAN TEAMS
a. As initially envisaged, on 31 May, following ENDEX, a debriefing was held with those in charge of the different European modules and the regional teams involved in CASCADE'19 (Livex Hot Wash up). b. This meeting was held at the Vendas Novas BoO and was led by CONEPC. c. Based on the interventions, the following most relevant points are identified:
MAIN STRENGTHS MAIN ITEMS TO BE IMPROVED Very realistic and challenging Constraints identified: scenarios; Some delay on the deployment of The possibility of joint training with the teams to the scenarios; other teams with similar skills – Some waiting time for the start of fostering interoperability; the interventions while already at The support given by the escorts the TO; (GNR) which made it easier to travel Long distances travelled between in the country; the BoO and the scenarios; The support given by the OFAC; The fact that not all of the All the procedures at the HNS level capabilities available in the modules were highly efficient, meeting the were duly used – a situation that is needs felt. related to the scenario preparation; Difficulty in obtaining more detailed information on the scenarios; Some of the scenarios were not very challenging, particularly for the CBRN teams; Some proposals identified: The use of the virtual OSOCC could have been considered; The exercise should be made more visible on social media, encouraging the intervention of the various teams involved; There should be a decrease of the level of information available on the exercise website.
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D. ANALYSIS OF THE ESTABLISHED OBJECTIVES
a. As previously mentioned, different objectives were identified when designing the CASCADE'19 exercise, both at national and European level. b. Accordingly, and under the framework of the global evaluation that this Report seeks to provide, an analysis regarding the objectives accomplishment must be carried out. The next points aim to identify some main conclusions:
i. National level objectives 1. Test and practice the procedures associated with the planning of a highly complex exercise This was an umbrella objective right from the start, and it was dependent on the accomplishment of the others proposed objectives, and therefore, this had an added importance. We consider that this objective was fully met as it involved a complex and great effort by ANEPC human resources also from the entities that participated in the planning, which was carried out successfully. Furthermore, we believe that the first test to this planning began right at the stage when the application was being prepared. Most people do not know that between the decision to submit the application and the timeline to do so, there were just 3 days left. Therefore, the drafting of the application, namely the grant agreement template filling was the first real test for the ANEPC team that drafted it. We thereby feel that the test of the procedures associated with planning CASCADE´19 was fulfilled 100%.
2. Test the National Civil Protection and Emergency Plan (PNEPC), the District Civil Protection and Emergency Plan (PDEPC) for the districts involved and the Municipal Civil Protection and Emergency Plans (PMEPC) for the municipalities directly involved in the exercise This objective was a huge challenge given the various levels (national, regional and municipal) involved. Nevertheless, this added difficulty inherent in its execution, it was possible to test all these levels, particularly in applying large part of the main procedures envisaged in the plans in question, especially with regard to the information and reporting mechanisms, procedures at the morgue, political, institutional and
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operational coordination and also support given to the populations – the ones that are most relevant for real and exceptional situations. We thereby feel that this objective was met and we wish to highlight the work of the entities that, at the various levels of action, led to its fulfilment and allowed us to test strategic standards of vital importance to the improvement of the civil protection system.
3. Test the integration of the Clean Sea Plan (PML) with the Civil Protection and Emergency Plans (PNEPC, PDEPC and PMEPC) Including this objective was no mere coincidence, but rather the concern of integrate a scenario of this nature in a European scale exercise for the first time. Its effective integration therefore didn’t just meet the intended goal, but it also allowed us to identify, for the first time, the areas of convergence and the items to be improved.
4. Test the procedures for joint intervention by national teams with different powers and skills The accomplishment of this objective was always present during the planning phase, starting with the creation of scenarios that would allow for testing in an effective manner the joint intervention of national teams with different fields of action. We feel that this objective was fully met, since it was possible to develop scenarios that effectively allowed for the joint intervention of different teams with different capabilities, and this reality became visible, especially in level III scenarios.
5. Test the interoperability between the national and European response teams This objective was also fully achieved and the European teams took on joint interventions with the national teams in search and rescue operations in collapsed buildings and in response to CBRN incidents. We did not record any incompatibility worthy of note.
6. Validate the national procedures on Host Nation Support – HNS – contributing towards the development of an integrated document of specific guidelines on this matter
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This objective was fully achieved with highly positive marks for the HNS procedures in force in Portugal, which can be shared with the EC structures under a logic of exchange of best practice. ii. European level objectives 7. Contribute to the ongoing efforts to improve the response capacity under the Mechanism framework This objective, which happens to be the most ambitious of the whole exercise, was also achieved. CASCADE'19 ended up becoming the largest exercise ever held under the Mechanism framework and undeniable contributed to the ongoing efforts at EU level for joint response to large- scale emergencies. Seeing that joint training and the exchange of know- how/experience will always be deemed key factors for effective emergency management, developing this subject through this type of exercise is in itself a fundamental contribution to the improvement of the European response capacity. 8. Test the procedures for deploying European teams through the DG-ECHO ERCC (European Response Coordination Centre) Considering that the procedures for activating the European modules under the Mechanism framework were thoroughly followed through the ERCC, although the mobilization of the resources wasn’t done in real time, we feel that this objective was also achieved. 9. Test the interoperability between the different European teams and modules in a complex scenario The interoperability between the different modules was tested in various scenarios and we feel the objective was achieved. It is worth noting that no significant restraints were identified in the procedures that required interoperability between the European teams and modules. 10. Test the operational intervention and integration of the Mechanism civil protection teams (EUCPT – European Union Civil Protection Team) The integration of an EUCPT in a European context has been widely discussed over the last few years. Once again, CASCADE'19 demonstrated that this integration is neither obvious nor evident, despite the effort to develop scenarios and injects that would allow for a sustained intervention by these teams. We feel the objective was achieved, although with
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conclusions that point towards some prudence in interventions of this kind in the European context. The EUCPT are very much geared to situations where the national structures have collapsed or where, for some reason, they do not have the capacity to deal with international assistance. In a very objective way, the probability of having scenarios of this scale in EU countries is low, so, deploying these teams should always be well thought out and duly articulated with the country affected and the EC. It is absolutely fundamental to ensure that in cases where they are deployed, the rules of engagement are duly drafted and suitable or we could have a EUCPT on the ground without an effectively valid assignment.
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E. OVERALL CONCLUSIONS
a. CASCADE'19 was a fundamental landmark for the national civil protection system and for European civil protection. The numbers speak for themselves: to be able to engage almost 7 thousand people, more than 50 entities, the involvement of the different system levels (national, regional and municipal), the autonomous regions and also 5 foreign countries attest the importance this Exercise had in a civil protection context. b. All the objectives that were initially set at national and European level were achieved which shows not only an efficient planning, but also an effective operational articulation, which allowed us to test the major objectives the exercise intended to accomplish with positive outcomes. c. It was evident in the response projected by the EU under this exercise that the Mechanism has evolved greatly, as well as the quick and effective way in which the European capabilities integrated with the national response efforts, to which the training and exercises undertaken within the Mechanism framework have greatly contributed. d. We found it very useful to build the scenarios based on the national risk analysis. It was of the utmost importance to have the prior knowledge regarding the risks when planning the exercise, as the scenarios building was based on cascade effect of different events, that would only be possible to know if the related risks had been identified. The National Risk Analysis thereby became a fundamental starting point to get to know the territory and, as a result, to test what really needed to be tested and where it needed to be so. e. Although the planning time allocated to the exercise was deemed satisfactory, we conclude that it would have been beneficial to allocate more time to the sectorial planning in certain areas of intervention (e.g.: morgue, CBRN), as a way to ensure the scenarios were better sustained and had more focused planning for the operational intervention, at the 3 levels: national, district and local. f. Considering the levels of difficulty associated with the exercise scenarios, it was clear that nevertheless how much we evolved in terms of systems to support decision-making and operational organization, these two areas are absolutely critical in situations that are exceptional or of greater complexity. Accordingly, it is fundamental that we keep investing in training the agents and partners at the different levels, particularly focusing on the municipal level, where the response
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action is initiated, and thereby contributing to an increasingly homogenous and integrated reality. g. The social and psychological support components took on a pretty significant role at national level for the first time. This is due to the growing connection and collaboration between the civil protection structures and the remaining entities that operate in this field, namely ISS and INEM, and also the awareness of the importance of developing this fundamental dimension associated with emergency scenarios that are large-scale and more complex. h. In terms of international assistance, and specifically with regard to hosting and integrating European teams, the previously identified and implemented national procedures were perfectly adapted to the demands. It is, however, fundamental that we create more conditions for training, at different scales and dimensions, allowing us to fine-tune procedures and make them routine. i. The integration of an EUCPT in a European context is not obvious, so it is advisable to propose to the European Commission the need to develop a thorough analysis of this team’s role in emergency situations within the EU. j. Operational information management is still a huge challenge and overcoming it is not always evident, whether at the exclusive level of national entities, whether in a broader context, where we integrate the European teams and the Mechanism itself. k. The exercise that intended, among other objectives, to test the National Emergency Plan and the plans at the different levels and areas enabled us to test the Clean Sea Plan, namely ensure the standards of preparedness of the National Maritime Authority (AMN) and the remaining entities of the Maritime Authority System (SAM). Based on what we observed, and the positive feedback by the various entities that took part, we feel that the goals were achieved, allowing for quality service in preparedness of the AMN resources and the assistance between this authority and the entities with regional and national responsibilities in this type of emergency. l. At the organization level, the planning was fulfilled successfully and the professional ties between ANEPC and DGAM-DCPM were strengthened. m. For the first time, a PEE was tested for the risk of a second generation dam (Ribeiradio/Ermida) bursting, and with positive results. This included evacuating the population via a sound warning in real time, setting up municipal ZCAPs (Sever do Vouga, Águeda and Albergaria-a-Velha) and interconnecting the PEI/PEE, with excellent cooperation by the site developer (EDP - Gestão da Produção de Energia).
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n. Planning and organization models were outcomes of the organization component, namely, “Exercise Instructions”; “HNS Guidelines”; “Observers questionnaires” which can be distributed with the MS to exchange best practices; o. The exercise’s Image and Communication component was planned and executed in a highly efficient manner, contributing to the awareness rise of the agents and citizens not just of the risks and the preparation measures, but also the international component and the international assistance instruments, such as the Mechanism. p. The integration of the diplomatic and consular structures, which wasn’t initially planned, showed that the planning stage is an open and dynamic process, that can adapt to new proposals for action. This good practice – the possibility to include new areas that weren’t initially envisaged – should be shared and used in the future. This situation enabled us to not just deepen the relations with the various entities, raising the consular structures’ awareness of the national procedures in managing emergencies, but also to fine-tune procedures and identify opportunities to improve.
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F. PROPOSALS
At national level:
a. Send a copy of this Report to all national and European partners, including the European Commission. b. Draft an Annual Exercise Plan (PAE) for 2020, an instrument that should be drafted on an annual basis. c. Start the development work and possible approval of a national operational directive on Host Nation Support. ANEPC should present a first draft, to be shared with the EU partners, as an example of best practice. d. Increase training and awareness raising for the different civil protection levels in terms of support to the populations (social and psychological). e. Create and develop a Lessons Learned Network at ANEPC, strengthened through a permanent link to the district and local structures and, externally, to all the System partners, in order to exchange best practice and lessons learned. f. Continue to invest in training in the field of civil protection, both at European and national level, involving all the partners that have tasks in this area. g. Bring the national standards/procedures closer to the European ones with regard to the internal organization of the national modules/capabilities designed for exceptional situations, even if they aren’t designed for international projection. h. Start the evaluation works on the feasibility of developing an IT platform that can support the management of complex emergencies at the command posts and institutional coordination structures, based on the existing tools, thereby contributing to the improvement of the operational information management.
At EU level:
a. Continue to invest in holding initiatives of this type, focusing whenever possible on scenarios of greater exception and fostering training of the different European teams. b. Consider drafting European recommendations that can get the countries to create strategic dual-use reserves – that is, national means and resources in reserve for exceptional situations and which can be used in the context of a either a national or a European/international emergency.
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c. Encourage a review of the EUCPT intervention procedures, creating an exceptional situation associated with possible interventions in European scenarios. d. Present the models used in the exercise and which may be considered “Best Practice” to be replicated in other MS.
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