1. IAEA Training in Emergency Preparedness and Response
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response
Exercise Objectives
Module L-053
Lecture: L-053: Exercise Objectives
Modified: 24/10/2005
Purpose: The lecturer/trainer has to:
explain what exercise objectives are and how they relate to performance objectives;
establish a link between EPR-METHOD 2003 and the exercise objectives;
explain how exercise objectives affect the choice of scenario.
Learning objectives: Upon completion of this lecture, the participants will:
understand the importance of defining clear exercise objectives;
know what planning and response objectives are;
understand the concept of an exercise program over 5 years;
know how to select exercise objectives;
know what exercise evaluation criteria are.
Duration: 50 minutes
References:
INTERNATIONAL ATOMIC ENERGY AGENCY, Method for developing arrangements for response to a nuclear or radiological emergency, EPR-METHOD, IAEA, Vienna (2003).
INTERNATIONAL ATOMIC ENERGY AGENCY, Preparation, Conduct and Evaluation of Exercises to Test Preparedness for a Nuclear or Radiological Emergency, EPR-EXERCISE, IAEA, Vienna (2005).
Lecture
IAEA Training in Emergency Preparedness and Response

2. Objectives Understand what exercise objectives are
L-053: Exercise Objectives
Objectives
Understand what exercise objectives are
Understand how they affect the scenario
Be familiar with planning and response objectives
Understand the concept of exercise program
Know how to select exercise objectives
Know how to develop exercise evaluation criteria
At the end of this lecture, participants should be familiar with the concept of response and exercise objectives and how they can be used as part of an exercise program.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

3. Why Response Objectives
L-053: Exercise Objectives
Why Response Objectives
Exercises measure performance, i.e. do the plans and procedures actually work?
To measure performance, one must define performance objectives
How performance is measured
Performance is measured by results!
As we said in the previous lecture, exercises measure performance. However, it is not possible to measure performance unless performance is defined. Normally, this is done in terms of exercise objectives.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

4. What are Response Objectives?
L-053: Exercise Objectives
What are Response Objectives?
Actions that the overall emergency response organization must be able to accomplish
Timings: how quickly must these actions be accomplished
Extent: how much must be accomplished
Response objectives are, in simple terms, the results which are required and expected. They define the goals to achieve, how much must be done, and how fast it must be done.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

5. Response Objectives - References
L-053: Exercise Objectives
Response Objectives - References
There are a number of references for emergency response objectives, including:
NUREG 0654
INPO guidelines
EPR-METHOD 2003
EPR-METHOD 2003 is a practical consolidation of current guidelines and practices:
It is the basis for this course
It must be adapted to the national context
The objective, to save lives, can be broken into several emergency response objectives related to the various functions that must be carried out in order to save lives, e.g. assessment, decision-making and protective actions. There are a number of references that describe emergency response objectives, the most famous of which may be the NUREG 0654 used in the U.S. and the INPO guidelines (Institute Nuclear Power Operators), also produced in the U.S.
The most recent guidance for emergency response objectives in the IAEA is EPR-METHOD This document provides checklists of elements that should be part of the preparedness and response components of emergency arrangements. In the response portion of each checklist, EPR-METHOD 2003 provides guidelines for response objectives. The guidelines are generic and must be adapted to local conditions.
The following is primarily based on those guidelines.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

6. Criteria Support each emergency response objective
L-053: Exercise Objectives
Criteria
Support each emergency response objective
Allow a breakdown of the function for the purpose of:
Procedures development
Evaluation
Each emergency response objective can be broken down into several criteria. Each criterion defines a measurable goal; this could be an action or timing requirement. For example, if the objective is notification, the criteria could be that a call is made within 15 minutes, and that all required information regarding the emergency is transmitted to off-site authorities.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

7. Emergency Response Objectives
L-053: Exercise Objectives
Emergency Response Objectives
The following list of on-site and off-site response objectives is based on EPR-METHOD 2003
Refer to EPR-METHOD 2003 for suggested timing and details
Keep in mind that the following is an overview:
Several details can be added
Levels and timings are suggested in EPR-METHOD 2003 but need to be approved by the appropriate national authorities
The following list of response objectives is one of many models. It can be adapted, and in fact it should. It can also be expanded and details can be added to take into account local and national distinctiveness. However, the functional areas covered are comprehensive. You should have a good reason to remove a functional area.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

8. On-site Response Objectives: Examples
L-053: Exercise Objectives
On-site Response Objectives: Examples
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

9. 1. Establishing Emergency Management and Operations
L-053: Exercise Objectives
1. Establishing Emergency Management and Operations
Execute on-site emergency response promptly without impairing performance of the normal operational safety functions
Make functional Operational Support Centre
Activate Emergency Operations Facility / Incident Command Post
Make Emergency Operations Facility / Incident Command Post fully functional
This objective refers to the ability of the on-site organization to establish emergency management organizations. Response time objectives for performing the tasks are presented in EPR-METHOD 2003.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

10. 2. Identifying, Notifying and Activating
L-053: Exercise Objectives
2. Identifying, Notifying and Activating
Promptly determine the appropriate emergency class or the level of the response, initiate on-site actions
Detect the emergency
Classify the emergency
This objective refers to the ability of the on-site organization to detect a situation which leads to an emergency, to properly assess it, classify it and to trigger the appropriate immediate response actions.
In other words, the on-site organization must be able to:
discover the situation promptly; and
classification of the event in established time limits.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

11. 2. Identifying, Notifying and Activating (cont’d)
L-053: Exercise Objectives
2. Identifying, Notifying and Activating (cont’d)
Notify and provide updated information to the off-site notification point
Notify with appropriate message
Provide the right initial information
Initiate actions based on the event classification
Activate the on-site and off-site organizations
The on-site organization must promptly inform off-site authorities and provide them with the right information to initiate appropriate actions. Requirements for timing (response time objectives) and for adequate information have to be pre-defined, and some guidance is provided in EPR-METHOD 2003.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

12. 3. Taking Mitigatory Actions
L-053: Exercise Objectives
3. Taking Mitigatory Actions
Take all appropriate actions to minimize consequences of radiation emergency
Confine the hazard
Dispatch emergency response teams
Prevent or reduce releases
The on-site organization must take all reasonable actions to prevent the spread of the hazard. Criteria for this include:
confining the hazard;
having response teams on the site of the emergency within x minutes; and
taking appropriate actions to prevent or reduce the release to the environment, such as ensuring that the NPP containment is properly isolated.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

13. 4. Protecting Emergency Workers
L-053: Exercise Objectives
4. Protecting Emergency Workers
Keep the dose to personnel and emergency personnel below established limits
Assess the on-site hazard
Broadcast appropriate messages
Keep non-essential personnel out of harms way
Implement dose control procedures for emergency workers, including off-site assistance services (e.g. fire fighters)
Provide medical first aid
The on-site organization must protect its non-essential workers from both the radiological and the conventional hazards. This involves criteria such as warning the personnel, conducting muster and accounting of personnel, establishing dose control procedures, and periodically measuring ambient dose rates at assembly points.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

14. 5. Protection of the Public
L-053: Exercise Objectives
5. Protection of the Public
Promptly assess the potential off-site impact and communicate it effectively to the off-site authorities
Update the emergency classification as required
Recommend protective actions
Project dose off-site
Carry out survey around the station
Communicate the results in a timely manner
The on-site organization has a role in protecting the public. The extent of this role may vary in different countries. In general, the on-site organization must provide a timely and effective assessment of the off-site risk to off-site authorities. The form of this assessment, and therefore the criteria for this response objective, will vary from country to country.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

15. Off-site Response Objectives: Example
L-053: Exercise Objectives
Off-site Response Objectives: Example
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

16. 1. Notification and Activation
L-053: Exercise Objectives
Promptly and effectively inform, activate and coordinate all organizations, groups and agencies that perform emergency response tasks
Notify all response organizations
Activate sufficient personnel to be able to perform critical functions in a timely manner
Notify and inform the IAEA and neighbouring countries
Once notified, the off-site authorities must in turn notify all appropriate response organizations in a timely manner. Criteria for this objective must address how fast this notification must be, who exactly needs to be notified and what information needs to be passed on.
Then, off-site organizations need to be able to have enough staff in place to perform their essential functions in a timely manner. Again, criteria will address how fast that must occur, and what are the critical functions to be performed.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

17. 2. Urgent Protective Actions
L-053: Exercise Objectives
2. Urgent Protective Actions
Promptly implement urgent protective actions to prevent deterministic health effects and to avert doses consistent with national guidance
Properly assess required protective actions
Based on emergency classification
Based on surveys
Instruct the public in a timely manner
Evacuate the precautionary action zone in a timely manner
Evacuate affected zones outside the PAZ in a timely manner
Urgent protective actions include evacuation, sheltering, stable iodine distribution and supporting actions such as road control and evacuation centre operation. The aim here is to protect the public in the early stage of the emergency. Criteria must address all aspects of that response, including timing, target number of people (for evacuation and evacuation support), and sizes of zones to be considered for urgent protective actions. For example, a criterion could be: evacuate 2000 people in the 0 to 5 km zone in four hours.
All urgent protective actions are considered in this objective because an effective response strategy must consider all possible protective actions in an integrated manner.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

18. 2. Urgent Protective Actions (Cont’d)
L-053: Exercise Objectives
2. Urgent Protective Actions (Cont’d)
Implement sheltering in a timely manner
Implement stable iodine distribution in a timely manner
Evacuee support services available in a timely manner
Contamination control
Reception centres
Evacuee centres
Traffic control
Implement measures to prevent or control spontaneous evacuation
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

19. 2. Urgent Protective Actions (Cont’d)
L-053: Exercise Objectives
2. Urgent Protective Actions (Cont’d)
Continue surveys of affected areas
Update gamma surveys regularly
Get isotopic data in a timely manner
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

20. 3. Emergency Worker Protection
L-053: Exercise Objectives
3. Emergency Worker Protection
Keep the dose to emergency workers below established limits
Implement dose control procedures for emergency workers in the urgent protective action planning zone
Make appropriate decisions regarding radiation protection measures
Implement contamination control for emergency workers and equipment leaving the affected area
For emergency workers, i.e. those who may be exposed in the course of actions to contaminated environments or high dose rates, the response objective is, quite simply put, their protection. This means that their dose must be kept below accepted levels. Criteria for this objective include:
dose control activities must be established;
dosimeters must be available and worn;
contamination control points must be established.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

21. 4. Medical and Other Emergency Services
L-053: Exercise Objectives
4. Medical and Other Emergency Services
Provide adequate medical, police, and fire support services
Medical care of evacuees, including conventional care and care for overexposed individuals
Maintain security and other essential services in the evacuated zone
This response objective addresses the need to maintain essential services in the areas affected. This includes, for example, security and fire fighting.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

22. L-053: Exercise Objectives
5. Public Information
The public is kept accurately informed of the hazard and of measures in place to protect the population
The Public Information Centre is operational in timely manner
Information provided to the media is clear and timely
Information by various organizations is coordinated
Rumours are controlled
Public information is a complex aspect of emergency response. The main objective here is to ensure compliance with the protective actions. It is essential that the public is properly informed on the emergency so that their reaction is controlled and that confidence in the authorities to manage the emergency is maintained. Criteria include the establishment of a Public Information Centre, coordination mechanisms between the various stakeholders and the control of rumours.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

23. 6. Longer-term Protective Actions
L-053: Exercise Objectives
6. Longer-term Protective Actions
Effectively implement longer term protective actions and interventions related to food in a manner consistent with national guidance
Identify affected areas
Implement food control measures in accordance with established levels
Relocate or resettle populations in accordance with established levels
The off-site organization must be able to implement effective and coordinated longer term protective actions. These include food control, relocation and resettlement. Criteria include:
the timely assessment of the affected area;
the ability to make appropriate decisions; and
the ability to carry out individual measures.
Criteria should also address the timing of these measures.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

24. 7. Non-radiological Impacts
L-053: Exercise Objectives
7. Non-radiological Impacts
The psychological impact on the affected population, emergency workers and relatives is minimized
Keep evacuees informed
Time of return
Health impacts
Keep populations in the affected areas informed
Planned measures
Keep emergency workers and their families informed
Measures taken to minimize them
The main objective here is to ensure that the impact of the emergency is not amplified by a negative and inaccurate perception of the risk. This objective addresses primarily the affected public, whether they are evacuated or not. But it also must consider the impact on families of those who are directly involved in response activities on behalf of off-site authorities in the affected area, where they be exposed to radiation.
Criteria include the correct identification of the target audience and the timely dissemination of information. They could also include the conduct of public meetings at the reception centres.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

25. Response Objectives - Summary
L-053: Exercise Objectives
Response Objectives - Summary
The previous examples provide an overview of response objectives
Response objectives are results-oriented
For each objective, criteria can be defined based on the national context, plans and procedures
Timing must be defined based on a reasonable assessment of the risk and on practical considerations
In summary, response objectives are functional, as opposed to group specific, and result oriented, as opposed to procedures oriented. They are supported by criteria, which allow a dissection of the objective into its many components, most of which define the degree of success which must be achieved by the response.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

26. L-053: Exercise Objectives
Exercise objectives are related BUT are not the same as response objectives
Example:
Response objective: evacuate the precautionary action zone in four hours:
not necessarily practical during an exercise
Exercise objective: evacuate a representative sample of the precautionary action zone (say one tenth) in 30 minutes
Now that we have discussed RESPONSE objectives, it is necessary to point out that they are not necessarily the same as EXERCISE objectives. This is because, for practical reasons, in an exercise, it is not always possible to verify the complete response objective. The most obvious example is evacuation. If the response objective for evacuation affects, say, 10,000 people, it would be difficult in reality to exercise the full evacuation of that entire group. On the other hand, it is maybe possible to evacuate a smaller sample in a shorter time to verify if the procedures for doing so are adequate. This would provide an indication, and only an indication, that the actual response objective can be met with the arrangements in place.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

27. Exercise Objectives (Cont’d)
L-053: Exercise Objectives
Exercise Objectives (Cont’d)
It is not necessary to verify all response objectives in each exercise
Some objectives cannot be simultaneously verified
e.g. activation during the day and activation at night
It is usually not practical or overly costly to verify all response objectives in one exercise
Verification of all response objectives should be part of a well planned exercise program
In general, a single exercise will not try to achieve all response objectives. Doing so may not be practical or even possible without a major investment of resources. Hence, in practice, emergency response objectives are spread out over a five year program. Over five years, it is possible to verify most response objectives. This involves the planning of a well defined exercise program.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

28. L-053: Exercise Objectives
Exercise Program
It is a plan to conduct a series of exercises at a pre-established frequency, covering all response objectives over a set cycle
A five-year cycle is common, with one exercise per year for each major facility
Over five years, all response objectives should be tested
Some response objectives may be tested every exercise, while others may not
e.g. test assessment every time, but not evacuation
Over a five year program, all response objectives and all major organizations in the plan should be targeted by at least one exercise. Some objectives will of course be tested more often.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

29. Selection of Exercise Objectives
L-053: Exercise Objectives
Selection of Exercise Objectives
Be practical; over-ambitious exercises are not necessarily better exercises
Select key response objectives and those that have not been tested for some time
Adapt the response objective to the scope of the exercise. This then becomes a specific exercise objective
Keep track of objectives tested
Exercise matrix
There is often a tendency to go overboard in exercises and test as many objectives as possible. This is not necessarily better. It is best to focus on a few key objectives, and on those which have been weak in the past. This ensures that the lessons learned are manageable and lead to concrete changes.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

30. Factors Affecting the Selection
L-053: Exercise Objectives
Factors Affecting the Selection
Restrictions on exercise start time
Exercise duration
Participating organizations
Scope
Political context
Resources available (human and financial)
Equipment available (e.g. reactor simulator)
Preparation time available
Exercise objectives are also often subject to constraints imposed by practical considerations. For example, it may not always be possible to start the exercise in the middle of the night, even though this would allow a useful test of the functions at a time when people are least available. Financial resources may also be limited and prevent the conduct of an exercise over several days. There may also be other priorities, political or others, which limit the time available for the exercise, or which limits the participation of some important organizations. All these need to be taken into account when selecting exercise objectives.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

31. Objectives and Scenario
L-053: Exercise Objectives
Objectives and Scenario
The exercise objectives must be selected first
Then, the scenario is developed to meet the objectives
Sometimes, it is difficult to meet all objectives and adjustments must be made
Remember the process. The objectives are selected before the scenario is developed. The scenario must allow all required objectives to be verified. Therefore, the objectives are the basis for the type of scenario that will be developed.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

32. Standard Scenario Objectives
L-053: Exercise Objectives
Standard Scenario Objectives
On-scene control
Medical response
Radiological response
Media relations
Public Health
International assistance
Post-exercise critique
The following slides introduce the exercise objectives contained in the IAEA standard radiological emergency exercise manual. Each of these objectives is supported by a series of criteria. Objectives and criteria can be found in your handout of the standard exercise manual.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

33. L-053: Exercise Objectives
On-scene Control
Emergency response services arrive promptly at the scene
On-scene command and control is promptly established
The medical response at the scene is well coordinated with other response organizations, particularly radiological response, in terms of cooperation, command and control and communication links
The radiological response at the scene is well coordinated with other response organizations, particularly medical response, in terms of cooperation, command and control and communication links
The capability to direct and control emergency operations is demonstrated and maintained
The transfer of responsibility at the site, if it occurs, is carried out seamlessly and effectively
Immediate conventional hazards are promptly mitigated
Notification of public health and governmental authorities is demonstrated
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

34. L-053: Exercise Objectives
Medical Response
The medical responders at the emergency scene promptly address the immediate medical consequences (critical first aid)
Life-saving medical first aid is given priority over decontamination
Field triage is performed appropriately based on medical needs, contamination and potential overexposure
Critical patients are promptly transferred to the appropriate hospitals while minimizing, to the extent possible, the spread of contamination
Patient transport is performed safely using appropriate equipment
Patient care during transport is adequate
Effective initial and subsequent medical management of symptomatic, asymptomatic, externally contaminated, and internally contaminated patients is provided
Medical authorities correctly assess the current and potential public health issues
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

35. Radiological Response
L-053: Exercise Objectives
Radiological Response
Qualified radiological specialists promptly notify medical authorities of the presence of high radiation
A safe perimeter is promptly established and confirmed safe by scene survey and measurements of contamination
Capability of continuous monitoring, dose evaluation, and radiation protection of emergency workers, patients, and the public is demonstrated
Measures to prevent the spread of contamination are taken
Procedures for the monitoring and decontamination of emergency workers, equipment, and vehicles are adequate
Hazardous sources are recovered or made safe in a timely manner
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

36. L-053: Exercise Objectives
Media Relations
The media at the scene is properly managed including rumour control
Media liaison is coordinated between the various response organizations
Factual media statements are formulated and issued to the public
Medical information is promptly provided to relatives and the media; and is coordinated with other response organizations
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

37. L-053: Exercise Objectives
Public Health
The principal short-term risks to the population are identified and characterized
Decisions are taken and actions are outlined to allay fear and panic
An action plan that conforms to governmental guidelines is developed to control potential exposure from food production, sales, and consumption
A program of long-term medical follow-up is established
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

38. International Assistance
L-053: Exercise Objectives
International Assistance
The need for additional specialized assistance or medical referral is identified and assessed
If required, international assistance is requested
Appropriate coordination is established with international experts
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

39. Post Emergency Critique
L-053: Exercise Objectives
Post Emergency Critique
The capability of the emergency responding organization to conduct a post-exercise self-assessment and responders' exit interviews is demonstrated
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response

40. Summary First define response objectives that apply to your situation
L-053: Exercise Objectives
Summary
First define response objectives that apply to your situation
Then establish an exercise program for each facility, region or level of government concerned
Define: exercise start time, exercise duration, participating organizations, scope, resources available, equipment available, and time available
Select practical and feasible exercise objectives based on the response objectives
So, in summary, it is important to define all response objectives that apply to your context. Then, establish an exercise program that allows the testing of all response objectives over a set period of time (usually five years). Note that the program and the frequency of exercises may not be the same for all levels and all organizations.
Then, for each exercise, define the constraints such as possible start time, duration, participating organizations, etc. Then select a practical set of objectives for that exercise.
L-053: Exercise Objectives
IAEA Training in Emergency Preparedness and Response