Figure 2
Simulated collapse of Alaskan Way Seawal 1
Figure 1: Simulated Collapse of Alaskan Way Seawall and Viaduct (2009).
Washington Department of Transportation, 2009. Web. 4 Sep 2013.
<http://www.wsdot.wa.gov/Projects/Viaduct/Library
Sound Response 2013
Continuity of Operations (COOP), Devolution Table Top Exercise (TTX)
Situation Manual
September 17, 2013
Seattle, WA
FEMA
UNCLASSIFIED
Situation Manual
Sound Response 2013
THIS PAGE IS INTENTIONALLY LEFT BLANK.
UNCLASSIFIED
Situation Manual
Sound Response 2013
HANDLING INSTRUCTIONS
1. The Exercise Sound Response 2013 is sponsored by the Seattle Federal Executive Board
(SFEB) and the Federal Emergency Management Agency (FEMA). This Situation Manual
was produced with input, advice, and assistance from the Sound Response 2013 Planning
Team.
2. The title of this document is the Sound Response 2013 Situation Manual.
3. The information gathered in this Situation Manual is UNCLASSIFIED. The control of
information is based more on public sensitivity regarding the nature of the exercise than on
the actual exercise content.
4. All exercise participants should use appropriate guidelines to ensure the proper control of
information within their areas of expertise and protect this material in accordance with
current Agency-specific directives.
5. Public release of exercise materials to third parties is at the discretion of the Sound Response
2013 Exercise Planning Team.
6. For more information, please consult the following points of contact (POCs):
Sound Response 2013 Table Top Exercise Planning Team:













Andrew Cleaves, FEMA Region X, andrew.cleaves@fema.dhs.gov, 425-487-4732
Paul Carlson, Seattle Federal Executive Board, paul.carlson@gsa.gov, 206-220-6171
Cynthia Ford, U.S. Department of Justice, Cynthia.ford2@usdoj.gov, 206-553-2423
David Ochs, Federal Aviation Administration, david.ochs@faa.gov, 425-227-1514
David Spicer, United States Army Corps of Engineers, david.n.spicer@usace.army.mil,
206-764-3793
Franchesca Gilbert, U.S. Army Corps of Engineers,
franchesca.q.gilbert@usace.army.mil, 206-764-3420
Frank Gremse, General Services Administration, frank.gremse@gsa.gov, 253-931-7508
Mark Peterson, Customs and Border Protection, mark.r.peterson@cbp.dhs.gov, 206-5536944
Peter Rubenstein, Environmental Protection Agency, rubenstein.peter@epa.gov, 206553-1067
Raymond Fleck, U.S. Department of Justice, Raymond.fleck@usdoj.gov, 206-370-8604
Christopher Springer, United States Coast Guard, Christopher.c.springer@uscg.mil, 206220-7089
Michelle McCurtain, FEMA National Continuity Programs,
Michelle.McCurtain@fema.dhs.gov, 202-646-3741
Cynthia Adams, FEMA National Continuity Programs, Cynthia.adams@fema.dhs.gov,
202-646-1641
Handling Instructions
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GENERAL INFORMATION
Introduction
Sound Response 2013 is part of the annual Sound Response continuity exercise series cosponsored by FEMA Region X and the Seattle Federal Executive Board (SFEB). This series
establishes a learning environment for all participants based on continuity plans, policies, and
procedures. This exercise is based on a continuity tabletop exercise designed to establish a
learning environment for all participants.
Confidentiality
Exercise Sound Response 2013 is an unclassified exercise. The control of information is based
more on public sensitivity regarding the nature of the exercise than on the actual exercise
content.
All exercise participants should use appropriate guidelines to ensure the proper control of
information within their areas of expertise and protect this material in accordance with current
agency-specific directives. Public release of exercise materials to third parties is at the discretion
of the Sound Response 2013 Exercise Planning Team.
Purpose
The purpose of this exercise is to allow agencies to discuss and validate the Continuity process of
Devolution within agencies’ continuity plans, policies, and procedures after a 6.7 earthquake in
Puget Sound.
Exercise Objectives
Devolution is the process in which an organization’s leadership and staff are unavailable or
incapable of performing essential functions from either the primary operating facility or alternate
sites; these responsibilities are then transferred to personnel at a location that offers a safe and
secure environment in which essential functions can continue.
This tabletop will focus on the following objectives:
1. Through the use of a catastrophic earthquake scenario, test and strengthen
agencies’ current “Devolution” plans and support agencies’ initial efforts in
developing comprehensive “Devolution” plans.
2. Explore the existing partnership with your agency’s pre-designated Devolution
counterpart.
General Information
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EXERCISE LOGISTICS
Exercise Summary
General
Exercise Sound Response 2013 is designed to establish a learning environment for players to
exercise the Devolution process within their Continuity Plans and procedures. Agency
representatives will be seated at tables, based on their agency and interdependent missions, to
discuss Devolution procedures within their respective agencies as well as external interdependent
agency representatives.
Assumptions
Assumptions constitute the implied factual foundation for the exercise and, hence, are assumed
to be present before the start of the exercise. The following general assumptions apply to Sound
Response 2013:

The exercise will be conducted in a no-fault learning environment wherein processes, not
individuals, will be evaluated.

Exercise simulation will be realistic and plausible, containing sufficient detail from which
to respond.

Exercise players will react to the information and situations as they are presented, in the
same manner as if this had been a real event.

Exercise participants are well versed in their own agency’s role and continuity plans and
procedures.

Players will use the information provided by the facilitator to reach conclusions pertinent
to the exercise scenario.

Players will discuss exercise events in accordance with agency approved plans,
procedures, and processes. In absence of any written guidance, players will use initiative
to react to the exercise events in a manner acceptable to their agency’s standing policies.

Decisions made during the exercise are not precedent-setting and do not necessarily
reflect an agency’s final position on a given issue. The exercise is an opportunity to
discuss and present multiple options and possible solutions.
Exercise Implementation
Concept of Play
Participating agencies will be grouped together at tables throughout the exercise room. Each
table will have a facilitator to keep pace and deliver the exercise and related question. Once
provided with the event, facilitators will prompt discussion through the scenario and discussion
points. At the end of each discussion period, each table will choose a participant or use the
facilitator to brief out during the discussion panel about their table’s output. Interaction among
Exercise Logistics
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agency colleagues and other agencies and organizations is strongly encouraged to promote
information sharing.
Exercise Rules
The following are the general rules that govern exercise play:

Real-world emergency actions take priority over exercise actions.

Exercise participants will comply with real-world response procedures unless otherwise
directed by control staff.

The scenario is designed to set the tone for the exercise; however, participants are
encouraged to not get caught up with the details of the scenario and get involved in the
exercise play.
Exercise Setup
Exercise setup involves the pre-staging and dispersal of exercise materials; including registration
materials, documentation, signage, and other equipment as appropriate.
Accident Reporting and Real Emergencies
For an actual emergency that requires assistance, the phrase will be “Real-World Emergency.”
The following procedures should be used in case of a real emergency during the exercise:

Anyone observing a participant who is seriously ill or injured will first advise the nearest
facilitator, then if possible, render aid, provided the aid does not exceed his or her
training.

If the nature of the emergency requires a suspension of the exercise at the venue/function,
all exercise activities at that facility will immediately cease. Exercise play may resume at
that venue/function once the emergency situation has been addressed.

If a real emergency occurs that affects the entire exercise, the exercise may be suspended
or terminated as necessary.
Site Access
Parking, Directions, Hotels and nearby restaurants
The exercise will be held on the 19th floor conference room, Seattle Federal Courthouse, 700
Stewart Street, Seattle, WA.
For more information on nearby parking, directions, hotels, and restaurants in close proximity to
the Seattle Federal Courthouse, please visit the Seattle Federal Courthouse website for visitors:
http://www.wawd.uscourts.gov/visitors/seattle-courthouse
Exercise Logistics
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Refreshments and Restroom Facilities
A light breakfast and coffee will be provided. The exercise is scheduled to end at 12:00 pm and
as a result, no lunch will be provided.
Restroom facilities are located outside the conference room, on either side of the elevators. They
will be identified during welcome and introductions.
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FACILITATOR AND PLAYER GUIDELINES
Exercise Staff
Exercise Director
The Exercise Director has the overall responsibility for planning, coordinating, and overseeing
all exercise functions. He manages the exercise activities and maintains a close dialogue with
the Senior Facilitator regarding the status of play and the achievement of the exercise design
objectives.
Exercise Director:

Andrew Cleaves, FEMA Region X, andrew.cleaves@fema.dhs.gov, 425-487-4732
Facilitators
The individual facilitators issue exercise materials to players as required, monitor the exercise
timeline, and monitor the safety of all exercise participants. They provide injects to the players
as described in the MSEL.
Available exercise facilitators:













Andrew Cleaves, FEMA Region X
Paul Carlson, Seattle Federal Executive Board
David Ochs, Federal Aviation Administration
David Spicer, U.S. Army Corps of Engineers
Franchesca Gilbert, U.S. Army Corps of Engineers
Frank Gremse, General Services Administration
Mark Peterson, Customs and Border Protection
Peter Rubenstein, U.S. Environmental Protection Agency
Raymond Fleck, U.S. Department of Justice
Christopher Springer, United States Coast Guard
Michelle McCurtain, FEMA National Continuity Programs
Jeff Sargent, Oregon Federal Executive Board
Cynthia Adams, FEMA National Continuity Programs
Facilitator Instructions
Before the Exercise

Familiarize yourself with the guidelines and mandates of the Federal Continuity Directive
(FCD) 1, particularly the concept of Devolution.

Review the appropriate emergency plans, procedures, and exercise support documents.
Player Guidelines
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
Read the Situation Manual, which includes information on exercise safety.

Be at the site venue at 7:30 AM on September 17th, 2013.

Please sign in.
During the Exercise

Keep the participants on track by prompting discussion based on the scenario and
discussion in the Situation Manual.

Do not engage in personal conversations with players or observers while the exercise is in
progress. Discourage sidebar conversations within your group. If you are asked an
exercise-related question, give a short, concise answer. If you are busy and cannot
immediately respond, indicate so, but report back with an answer at the earliest time
possible.

Continuity matters that do not relate to the topic should be placed on a “parking lot”
status, to be addressed at a later time.

If you do not understand the scope of the exercise or if you are uncertain about an
organization’s or agency’s participation in an exercise, please ask the senior facilitator.

Parts of the scenario may seem implausible and the players may object to certain parts of
the scenario. Recognize that the exercise has objectives to satisfy and may require the
incorporation of unrealistic aspects. Note that every effort has been made by the Exercise
Planning team to balance realism with safety and the creation of an effective learning
environment.

Ensure that the table selects a different person to report to the plenary after each
discussion period.

Maintain a log of your activities. It will all be useful for production of the After Action
Report (AAR).

Remain focused throughout the exercise.
Following the Exercise

Your group will be provided time to prepare for the panel discussion.

Encourage full participation in the panel discussion.

Select a group spokesperson to report out on the ups, downs and most significant lesson
learned from the exercise.

Collect the Participant Feedback Forms from your table and submit to the senior
facilitator.

Provide any notes or materials generated from the exercise to the senior facilitator for
review and inclusion in the After Action Report (AAR).
Player Guidelines
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EVALUATION AND POST-EXERCISE ACTIVITIES
Exercice Documentation
The goal of exercise Sound Response 2013 is to comprehensively discuss and validate the
concept of Devolution within Continuity plans and capabilities in a no-fault environment. After
the exercise, data collected by facilitators and players will be used to identify coordinated agency
strengths and areas in agency plans that need improvement in the context of the exercise design
objectives.
Exercise Evaluation
The exercise will be informally evaluated as a whole by the facilitators and players for overall
lessons learned, best practices, and areas of improvement as they pertain to agencies in general
and/or inter-agency coordination. Agencies are encouraged to independently evaluate their
agency-specific continuity plans, policies, and procedures. The Devolution portion of the
Continuity Self-Assessment Tool is included in the participant package to help agencies identify
areas of strengths and improvements.
Panel Discussion
Following the completion of the TTX module, each participant table will discuss their TTX
module output to the group. The panel discussion will supplant the traditional hot wash, and
allow the participants to compare their results and to allow a senior panel of Devolution
“experts” to comment on the results. This process will ensure that the participants receive the
most constructive feedback based on the TTX module and discussion questions. This process is
new to the Table Top Exercise design; however, the planning team hopes that the feedback will
provide more than enough input to the results of the TTX module.
After Action Report
The AAR is the culmination of exercise Sound Response 2013 best practices and lessons
learned. It is a written report outlining overall strengths and areas for improvement identified
during the exercise. The AAR will include the timeline, executive summary, scenario
description, mission outcomes, and objectives analysis. The AAR will be drafted by a core
group of individuals from the exercise design team and be distributed to all participants within
30 days after the exercise.
Evaluation and
Post-Exercise Activities
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SCENARIO AND DISCUSSION MODULES
1. Event +24hours: Initial Response and Devolution Activation
At 5:25 am on Tuesday, September 17, 2013 a magnitude 6.7 earthquake on the Seattle Fault
occurred. All of King County and adjoining counties were impacted including Seattle, Bellevue,
Mercer Island, Vashon Island, and communities along and north and south of the I-90 corridor.
The epicenter is believed to be under the Puget Sound basin, just miles west of downtown
Seattle. Some buildings in downtown Seattle have collapsed, and many others are severely
damaged. Portions of the Alaskan Way have collapsed into the Sound. Callers report a chaotic
scene along the water front.
Figure 2: Simulated Collapse of Alaskan Way Seawall and Viaduct (2009).
Washington Department of Transportation, 2009. Web. 25 Aug 2013.
<http://www.wsdot.wa.gov/Projects/Viaduct/Library
Figure 3: McDonald, Mike. 2001 Earthquake damage under the viaduct in
Seattle. N.d. Photograph. PanoramioWeb. 25 Aug 2013.
<http://www.panoramio.com/photo/8578299>.
The critical infrastructure in the area was heavily impacted. There are multiple reports of major
utility outages (power, water, phone, and gas) in various areas. Local communities are calling
911 and reporting multiple gas leaks and downed power lines. These are causing fires
throughout communities in Bellevue and Seattle. A report came in that the Olympic Pipeline has
been damaged.
Cellular and telephone communications are spotty and down in many locations, particularly
along the I-90 corridor. It appears that cellular and telephone communications are not working
in downtown Seattle and Bellevue and both downtown areas are experiencing rolling power
outages. Many internet and cellular providers are reporting a loss of 70% of their systems in the
impacted area. Damages in South Snohomish County are moderate with most roads and bridges
passable.
At 6:15 am, there was a report of a hazardous material incident resulting from a spill in South
Seattle near the Stadium from an overturned rail car. Motorists are reporting junction and
overpass sections of I-5 and I-90 to be damaged, though, the I-90 and 520 bridges are still afloat.
Scenario and Discussion Module
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Washington State Patrol is moving to close I-5 South of Seattle and I-90 East of Seattle. There
have been no reports yet of major damage at the ports of Seattle, however, SEATAC
international airport assessment teams report cracks in the runways. SEATAC officials have
decided to close the airport and divert all airport traffic to Portland and Vancouver International.
Figure 4: Vehicles are seen overturned on a highway near Santiago which
collapsed during the earthquake in Chile. N.d. Photograph. What's on
Xiamen?Web. 25 Aug 2013.
<http://www.whatsonxiamen.com/news10608.html>.
Figure 5: N.d. Photograph. NW Progressive.orgWeb. 25 Aug 2013.
<http://www.nwprogressive.org/weblog/archive/2005_10.01_archive.html>.
At 8:00 am, news reports are coming in showing that downtown Seattle is easily the hardest hit
of all metropolitan areas. Between power and communication infrastructure outages, and the
impact on I-5 and the I-90 floating bridge, the majority of companies/offices in downtown
Seattle are reporting through the news stations that their offices are closed until further notice. It
is mandatory that employees stay home and shelter-in-place if possible. Due to the impacts on I405 and I-5 in and around the city, traffic is at a standstill with the Washington State Patrol
closing down major sections of the highway due to collapsed bridges and multi-car pile ups due
to debris on the roadways. Getting in, out and around the Seattle Metropolitan area is difficult if
not impossible.
At 9:00 am, there are also reports on the news of multiple fires reported in downtown Seattle
and in the neighborhoods of Fremont and Green Lake. A reporter at Harborview and Swedish
medical center has confirmed that injuries and causalities have started to arrive at the hospital
due to collapsed buildings and structures in Pioneer Square and the Georgetown neighborhoods.
Both Hospitals are at 70% capacity, but that number is rising and it is expected to hit 150% in 6
hours according to the Hospital administrator at Harborview. A Seattle firefighter that was just
interviewed reported that their station is overwhelmed from the number of victims trapped in the
rubble from collapsed buildings in Pioneers Square and the Georgetown neighborhoods.
Local and State government officials have rescue crews racing to dig people out of the rubble.
Channel 7 news helicopters are circling the city and reporting out any damage on television
stations that are back up and broadcasting. They are reporting that Alaskan Way Viaduct has
been pancaked. Just at this site there are an estimated 40 deaths from collapsed cars due to the
viaduct’s failure. Emergency crews continue to sort through the rubble, listening for the voices
of those who are trapped.
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Given the time difference, many Headquarters elements of Federal Agencies in Washington
D.C., have been trying to coordinate with agencies in the area. However, the limited lack of
reliable infrastructure has been hindering this process. Government agencies that have been
affected by impact to the event have limited to no communications with staff on a regular
basis. All Federal Buildings in Seattle have been closed, with no estimated time of repair in
sight.
Figure 7: Seattle's 6.8 Nisqually Earthquake. N.d. Photograph. The Image
AresenalWeb. 25 Aug 2013. <http://theimagearesenal.com/2011/seattles-68.html>.
Figure 6: N.d. Photograph. Washington State Emergency Management
DivisionWeb. 25 August 2013.
<http://www.emd.wa.gov/hazards/haz_earthquakes.shtml>.
At 10:00 am, KNUW 7 news is reporting impact on the following transportation routes through
available television channels.
•
•
•
•
•
•
•
•
•
•
520 Bridge
Alaskan Way Viaduct
Puyallup River Bridge on I-5
East Channel Bridge
I-405 at Factoria
I-5 and I-405 interchange in Renton/Tukwila. Major damage, estimate of 40 days to
repair
Seattle Ferry Terminal
SeaTac Airport has been closed for runway inspections
All rail lines have been closed
Boeing Field is closed
Scenario and Discussion Module
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At 6:00 pm, Local Red Cross shelters are completely full from displaced families and many
people are starting to camp out in city parks, their yards or in their vehicles. People have started
shoring up their damaged homes as much as possible without being able to purchase repair
material. Stores like Wal-Mart and Home Depot are planning to re-open; but will be on limited
working hours and will probably run low on supplies.
Figure 8: Harada, Nobuhara. A shelter in Fukushima Prefecture. 2011.
Photograph. Majirox NewsWeb. 25 Aug 2013.
<http://www.majiroxnews.com>.
Figure 9: Emergency Sheltering. N.d. Photograph. The Salvation Army Fort
WayneWeb. 25 Aug 2013. <http://corps.salvationarmyindiana.org>.
Telecommunications, Internet, and Power companies in the area have not yet started sending out
their assessment crews due to concerns about unsafe bridges and road debris. They are
coordinating with local EOC and law enforcement and will start infrastructure assessments
and repair in a few hours based on available security, priority of restoration, and identification
of open roads/thorough ways. Initial analysis indicated that it could take up to 2 weeks before
the telecommunications, cellular, internet, and power is fully restored in the most damaged
neighborhoods.
Given the extensive damage to area infrastructure, your local agency leadership has
determined that it is incapable of fully supporting Mission Essential Functions at this time,
and is in the process of devolving its office’s functions to a location outside of impacted area
in the Puget Sound region.
Scenario and Discussion Module
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MODULE DISCUSSION
#
Inject
Points of Discussion

1
The executive leadership in your
agency is initially only able to
account for 20% of your
employees. Additionally, the
infrastructure damage (cellular,
road, internet, power, etc.) is
making communications difficult
if not impossible. A decision is
immediately made to devolve
until your agency leadership
can get a better handle on the
situation.







2
Your higher headquarters is
finally able to communicate with
your agency and wants to know
what the plan for devolution is?
They want to know what support
you require from them. They are
specifically inquiring about what
Mission Essential Functions that
you will support.



Scenario and Discussion Module
What are the normal criteria
that you use to induce
Devolution?
What Continuity/Emergency
Communication systems do
you have to communicate
initially with your devolution
partner?
What do you tell your
employees? How would you
get the message out to them?
What do you expect your
employees to do in this
situation?
Do you have an information
line that your employees can
call into?
How about your employees
that are disaster survivors?
What can be done to address
their current situation?
What type of information do
you need from Headquarters?
What type of support do you
think your partner office will
need now that they will support
their normal functions plus
your office?
Are you planning on
transferring all of your Mission
Essential Functions to another
office or just a select few?
Prioritization of MEF’s?
If there is no devolution
partner, does HQ have the
expertise to facilitate your
customer base in the region?
Does your agency work with
paper operating records? If
yes, what type of challenge and
issues can this present?
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Objective 1
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

3
You have established
communications with your
Devolution counterpart. The
Emergency Response planner at
the office wants to know how to
best coordinate the next steps.
They have to brief their
management later in the
afternoon. They are concerned
about being able to handle their
normal work functions plus your
office responsibilities.




4
A reporter has contacted your
agency and wants to know given
the current situation and the 
extent of damage, what will we
tell our “customer base” about the
services that we are providing?
Do we have a plan in place to
keep providing services even
during such a catastrophic event?
What are the details of that plan 
and how can the community find
out?

Scenario and Discussion Module
Does your office have a
Standard Operating Procedure
already in place that will guide
transfer of responsibilities?
If there is no SOP, how would
you start the process of
transferring functions? For
example, necessary Conference
calls, Teleconferences between
Senior Managers with the same
job function, etc.
Once devolved to another
office, what type of
information and updates would
you send to HQ? How
frequently?
For the sharing of information,
what IT systems would you
use? Can authority and access
to these be delegated?
How would you work with
your partner to improve their
staffing situation?
Would your “customer base”
change, decrease or increase?
How would you coordinate
these changes with your
partner?
Does your agency use social
media? If no, would your
agency consider using it and
how would you coordinate
with the Devolution partner to
pass information through this
media?
How would you use the
Local/National news networks
to help “get out the message?”
How would you message the
public in informing them of the
services being handled versus
not handled?
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APPENDIX A: EXERCISE SCHEDULE
Table A.1 Sound Response 2013 Schedule
Time
Activity
Comment
8:00
Registration and Check-in
8:35
Devolution 101
8:50
“Continuity and Devolution
during Hurricane Sandy”
9:20
TTX Scenario and Module Overview
9:25
9:40
Break and Networking
All
Mr. Kenneth Murphy, FEMA
Region X, Regional
Administrator
Ms. Michelle McCurtain –
FEMA HQ
Teleconference with Guest
Speakers
Mr. Andrew Cleaves, FEMA
Region X
All
TTX Module with Facilitators
All
8:30
11:00
11:15
TTX Welcome
Break and Networking
All
Module output with Panel discussion
All
Closing comments
Mr. Paul Carlson, Executive
Director, Seattle Federal
Executive Board
12:00
Appendix A: Exercise Schedule
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APPENDIX B: ACRONYMS
Table B.1 Acronyms
Acronym
Meaning
AAR
After Action Report
COOP
Continuity of Operations
CWG
COOP Working Group
ENDEX
End of Exercise
FEB
Federal Executive Board
FEMA
Federal Emergency Management Agency
FCD-1
Federal Continuity Directive - 1
FOUO
For Official Use Only
HSEEP
Homeland Security Exercise Evaluation Program
MSEL
Master Scenario Events List
PAO
Public Affairs Officer
POC
Point of Contact
SFEB
Seattle Federal Executive Board
SIMCELL
Simulation Cell
SITMAN
Situation Manual
SME
Subject Matter Expert
STARTEX
Start of Exercise
TTX
Tabletop Exercise
Appendix B: Acronyms
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