Master the Disaster!
Facilitator’s Script: Hurricane
INSTRUCTIONS FOR THE FACILITATOR:
• This can be used as a general guide or as a word-for-word script.
• If using as a script, you must customize it to fit your community. The easiest way to do this
is by using the “Replace” feature under the “Edit” menu at the top of your Microsoft Word
screen. The variables you will need to replace are <City>, <Local Health Department>,
<Major Local Highway> and <State>, and they are located throughout the script. The
variables you choose here should be the same as the variables you choose when using the
Disaster Designer within Master the Disaster! to customize the PowerPoint slides.
• This script is more elaborate than the text on the PowerPoint slides. You may want to read
over the script in advance to note the further clarifications and be prepared to provide
explanation to exercise participants.
• Additionally, there are discussion questions at various points during the scenario. While
using the Disaster Designer, you will be prompted to choose up to three questions for each
section, or to accept three default questions. There are check boxes next to each discussion
question in this script to help you keep track of the questions you choose for each section. In
addition to the questions provided, you may choose to add your own questions once the
slides have been created.
Introduction
Hello, my name is _____________ and I would like to welcome all of you to today’s emergency
preparedness tabletop exercise. I want to thank you for taking the time out of your busy schedules to
be here today. This a great opportunity for us to share knowledge and information that can help us
improve our individual department and agency emergency plans, and also to get to know each other
better and get a good feel for what it will be like during a real emergency, when different
departments and agencies will have to work together under what would most likely be some pretty
stressful circumstances.
For this tabletop, there are three different roles. As the exercise facilitator, my job is to provide
instructions, tell the story, introduce the discussion questions, help guide the discussions and answer
any questions you may have. As participants, your role is to immerse yourselves in the story and
respond as if the scenario were actually happening in your jurisdiction. Feel free to use any
resources that are available to you, such as agency policies and procedures, your Emergency
Operations Plan (EOP), etc. In addition, we have some evaluators here to observe the tabletop
exercise and evaluate the entire process so we can learn lessons for future exercises.
I know some of you here today have participated in tabletop exercises before, but for others, it may
be your first time. So I’d like to begin by briefly going over what exactly a tabletop exercise is and
the format we’ll be following as we go through it.
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Facilitator’s Script: Hurricane
Introduction, cont.
A tabletop exercise is when you bring together a group of people from different agencies, or from
different departments within an agency to review and discuss a hypothetical emergency situation
step-by-step to determine how effectively your agency would respond to an actual emergency. It
allows participants to talk through plans or problems related to a chosen topic in an informal and
stress-free environment. By doing this, we’ll be able to identify strengths and gaps in our plans and
have an opportunity to discuss policies, resources, communication, coordination, data management,
and other aspects of emergency preparedness. This tabletop is NOT designed to measure anyone’s
personal performance. Therefore, participants are encouraged to speak freely and openly exchange
ideas. This discussion-based exercise should serve as a springboard for further planning and more
comprehensive exercises, in addition to familiarizing us with the roles and responsibilities that we
will fulfill during an actual emergency.
Here are a few ground rules for today’s exercise. First and foremost, be in the mindset that this
scenario is real. The timeline in the story is structured as realistically as possible, so pay attention to
the day and time stamps on the bottom of each screen. During the exercise, each of you should play
the role of the department, agency and community that you represent. Finally, please operate and
contribute within your agency’s current resource constraints and realities so this exercise can be as
realistic as possible.
The goal of today’s exercise is to practice how the health department and other response partners
will work together during a public health emergency, and to strengthen our emergency plans by
identifying areas that need improvement. By the end of the exercise you should be able to do three
things: (1) Describe your individual and your agency’s roles in the response, (2) Identify at least
one gap in your agency’s existing Emergency Operations Plan, and (3) Know how to contact the
appropriate partnering agencies during business hours as well as after hours. (NOTE TO
FACILITATOR: Your objectives should match the objectives you have chosen for the
PowerPoint Slide)
The scenario that we will be discussing today has five different sections, or episodes. At the end of
each section, we’ll stop and have a group discussion about what’s going on so far and the types of
actions we would take at that point during an emergency. Additionally, at the end of the scenario,
everyone will participate in a debriefing, or “hot wash”, in which we will discuss how the exercise
went, what we gained from the experience, and what action steps we can take based on the lessons
learned. So let’s get started!
Note: Use the next two slides to set the scene for the tabletop and to draw participants into the
scenario using a seasonal image and current headlines. Then proceed to the actual scenario.
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Facilitator’s Script: Hurricane
Warning…
Day 1
A tropical storm develops in the Atlantic Ocean. After several days in open water, the storm is
upgraded to hurricane status. Conditions are favorable for the storm to continue to intensify over
warm waters. Forecasters at the National Hurricane Center (NHC) warn of the storm’s potential
landfall in the continental United States.
Day 3
8:15 a.m.
The hurricane becomes a Category Three storm on the Saffir-Simpson scale and
begins to behave unpredictably, changing course several times. The storm’s shifting
course makes it hard to predict exactly where and when it will land.
11:30 p.m.
Radar shows the storm moving at 10 mph, with winds averaging 125 mph. Computer
models indicate that the storm could make landfall anywhere along a 100-mile
stretch of the coast near <City>. NHC forecasters are unsure if the storm will
intensify or weaken as it approaches land. This uncertainty makes evacuation
decisions difficult.
Day 4
11:00 a.m.
The <Local Health Department> requests that local healthcare facilities review their
emergency plans relative to flooding, power outages and evacuation.
3:45 p.m.
The storm increases in intensity as it approaches the coast. The NHC indicates that
the storm could reach Category Four by landfall. Tourists and residents in coastal
and low-lying areas are encouraged to prepare for evacuation.
Day 5
11:30 a.m.
Radar now shows the hurricane is likely to hit <City> directly within 48 hours.
Evacuation is ordered for all residents within 10 miles of the coastal area projected to
be in the path of the storm.
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Facilitator’s Script: Hurricane
QUESTIONS
 For what hurricane-related public health risks should public health agencies
prepare?
A: Be prepared for infectious disease spread, air quality issues associated with mold,
contaminated drinking water, waste management problems, vector and pest control
challenges, food safety issues, burial and cremation of the dead, etc.
 What agency provides weather forecasts and warnings?
A: The National Weather Service (www.nws.noaa.gov) is the primary source of
weather data, forecasts and warnings for the United States. Television
weathercasters and private meteorology companies prepare their forecasts using
this information. The NWS is the sole United States official voice for issuing
warnings during life-threatening weather situations.
 What are your agency’s activation procedure and staffing plan for emergency
situations?
A: Consider the triggers for activation of an emergency response, how staff is
contacted, whether or not there are designated backups for each position under
Incident Command Structure (ICS), how to cope with staff shortages, plans for
surge capacity, and how your agency will support the response staff (e.g., safety
measures, mental health services, care for families, etc.).
 What information should the public be given to plan for hurricanes?
A: Prior to hurricane season, the public should be instructed to develop a family plan,
create a disaster supply kit, have an agreed-upon place to go and have a plan for
pets. For more information, visit
www.nhc.noaa.gov/HAW2/english/disaster_prevention_printer.shtml. When an
actual hurricane is approaching, information regarding evacuation orders,
evacuation routes, shelter locations and other emergency instructions should be
issued.
 What are the implications of the impending storm for your community’s school
system(s)?
A: Consider the timing of school closings. Also consider that many schools may
serve as hurricane shelters. Some schools may sustain damage or be destroyed,
leading to the need for alternate school sites.
 Which agencies have a role in setting up and operating evacuation shelters?
A: Refer to your agency’s plan. The Department of Homeland Security (DHS) and
the Federal Emergency Management Agency (FEMA) are the coordinating
agencies for emergency support function (ESF) #6 (mass care, housing, and human
services). Other agencies that may play a role include the American Red Cross,
the Salvation Army and local and state public health and other agencies (especially
in establishing special needs shelters). Also consider pet sheltering needs. Discuss
the role of public health in approving shelters from an environmental health
standpoint (e.g., food safety, sanitation facilities, sewage disposal, ventilation,
etc.).
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Facilitator’s Script: Hurricane
Communication…
Day 5, cont.
5:25 p.m.
Public transportation is arranged to evacuate people without the means to leave the
area. Local governments and disaster relief agencies open shelters. Additionally, a
limited number of shelters for those with special medical needs are opened. The
media publicizes locations of shelters and pick-up points for public evacuation
vehicles.
Day 6
6:30 a.m.
Evacuation routes, including <Major Local Highway>, are jammed, causing major
traffic backups for miles.
10:00 a.m.
Nursing homes and other long-term care facilities begin evacuating residents.
6:00 p.m.
National news programs show reporters waiting in <City> for the hurricane to hit.
The governor of <State> appears on television, making a personal appeal to all
people along the coast and in nearby low-lying areas in the path of the storm to
evacuate.
With Hurricane Katrina still fresh on everyone’s mind, reporters bombard local
government agencies with questions about their preparations for this hurricane.
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Facilitator’s Script: Hurricane
QUESTIONS
 Under these circumstances, how are public information and media inquiries
handled?
A: Refer to your agency’s plan to see who your agency’s media spokesperson is, how
your media plan may change if multiple agencies are involved in the response and
how using Incident Command System (ICS) principles would help in this situation.
Consider what critical messages should be delivered and how you would get them
to vulnerable/special needs populations in your community. Plan to monitor the
media to detect and dispel false information immediately. Also consider the role of
the Joint Information Center (JIC) and how multiple agencies may coordinate to
provide information.
 What critical messages should be delivered in this situation?
A: Refer to your agency’s plan. Consider reinforcing the need for evacuation,
evacuation routes, locations of shelters for the general population and those with
special needs, as well as pet shelters, how to prepare homes and businesses, and
flood safety issues.
 What emergency supplies should the public have?
A: Advise the public to develop a disaster supply kit, which should include a three to
seven day supply of: water, non-perishable food, eating utensils, manual can
opener, blankets, infant necessities, clothing, rain gear, first aid kit, first aid
manual, prescription medications, hygiene items, mosquito repellent, flashlights
with batteries, battery-operated weather radio with extra batteries, a fully-charged
cell phone, cash, important documents and pet care items (collars and leashes,
carriers or cages, food, water, immunization records and medications). For more
information, visit www.nhc.noaa.gov/HAW2/english/prepare/supply_kit.shtml.
Other supplies particularly useful during a hurricane may include a camera with
batteries, coolers, plastic tarps, tools, water purification kit, clean-up supplies,
plastic trash bags and baggies.
 What vulnerable/special needs populations do you need to reach in your
community?
A: Vulnerable/special needs populations might include non-English speaking people,
people with disabilities, nursing home residents, homeless, prisoners, people
without transportation and those residing in manufactured homes. Possible ways to
reach these populations include through their community leaders, community
organizations, newspapers, flyers, radio, television, communication systems (e.g.,
reverse 911, TTY), interpreters, etc.
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Facilitator’s Script: Hurricane
QUESTIONS, cont.
 How would your agency’s staff be supported so that they are willing to report to
work?
A: Consider what factors might prevent employees from reporting to work during an
emergency. Refer to your agency’s plan, especially your agency’s policy on duty
to report to work. For a sample copy of a “Duty to Report to Work” and other
policies, see the Local Heroes Public Health Emergency Preparedness Employee
Handbook: www.naccho.org/pubs/product1.cfm?Product_ID=154.
 What resources are available in your community to manage pets during an
emergency?
A: Determine if your community has shelters for pets and large animals such as
horses. Also consider the role of the Humane Society of the United States, the
American Society for the Prevention of Cruelty to Animals, other animal rescue
organizations and your state’s agriculture and public health departments. For more
information, visit www.hsus.org/hsus_field/hsus_disaster_center/.
Landfall…
Day 7
7:30 a.m.
The hurricane reaches Category Four status with sustained winds of nearly 155 mph.
Heavy rain begins to fall and winds pick up. Flooding renders some routes
impassable.
Inland hotels and motels become full, leaving thousands of motorists stranded.
Many gas stations have run out of fuel. Road lanes leading into the coastal area are
reversed to speed the evacuation.
10:30 a.m.
Landfall occurs, hitting <City>, which was already saturated due to higher than
normal rainfall levels in recent weeks. Winds are still around 155 mph, causing
major damage to homes and businesses. A 15-foot storm surge accompanies the
hurricane and flooding is widespread.
4:30 p.m.
As it moves inland, the hurricane weakens but continues to be extremely dangerous.
Overland tornadoes add to the destruction.
5:00 p.m.
Residents emerge to survey the damage. News helicopters flying over the area show
massive devastation. Power outages in the region make communication difficult.
6:30 p.m.
By now the hurricane has been downgraded to a tropical storm. It continues to dump
large quantities of rain along its path, causing flooding in some inland areas.
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Facilitator’s Script: Hurricane
QUESTIONS
 What are the key roles and responsibilities of public health agencies at this point?
A: Roles and responsibilities may include participating in the multi-agency
Emergency Operations Center (EOC) as well as the local public health agency’s
internal EOC, emergency shelter inspections, operating and staffing special needs
shelters, preparing special teams for environmental assessment and post-event
response, risk communication, conducting surveillance for illness and injury and
serving as first responders under the Incident Command System (ICS).
 How would your agency protect the health and safety of its employees?
A: Refer to your agency’s plan, particularly the role of the safety officer. Hurricane
response may expose responders to dangerous debris, carbon monoxide poisoning,
toxic chemicals and sewage. Consider issues such as monitoring staff for illness,
infection control training, prophylaxis and treatment plan for employees and their
families, mental health services, etc.
 What effect will an event like this have on your mission critical operations?
A: Determine what operations are mission critical. Consider what services you will
need to delay, postpone or cancel in order to respond to the event. Refer to your
agency’s plan for alternate worksites and information technology operations in the
event of an emergency.
 Without normal means of communication, how will you communicate with your
staff?
A: Consider the use of the following:
 cell phones
 walkie-talkies
 radio stations
 wireless broadband
 amateur radio operators
 email via wireless devices such as laptops and Blackberry
 runners to carry messages door-to-door
 posting messages in a central location
In the event of a large-scale evacuation in which staff may have evacuated to
another region, consider using a nationwide email group or another public health
agency to serve as a clearinghouse for communications with your staff.
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Facilitator’s Script: Hurricane
Crisis…
Day 8
7:15 a.m.
Throughout the night, local hospitals have received many patients injured during the
storm. Due to the power outage and flooding which has contaminated the water
supply, medical operations are compromised. Several field hospitals have been set up
and are treating patients.
8:00 a.m.
Public water and septic systems are contaminated by hazardous waste such as raw
sewage, chemicals and petroleum products in the floodwaters, which slows rescue
efforts and poses a health risk for those sheltering in their homes.
9:15 a.m.
Hundreds of people are trapped in areas devastated by the storm. Some shelters have
been damaged by the storm and must be evacuated. This creates overflow in other
shelters. Many people want to return to their homes but are not being allowed back
into their neighborhoods until authorities can assess and secure the areas.
9:30 a.m.
Fire, police and other first responders are severely hindered, both by staff shortages
and by loss of, or damage to, official buildings, vehicles and equipment.
11:00 a.m.
Officials estimate that it will take days or even weeks to restore critical infrastructure
in <City>.
5:00 p.m.
National news reports widespread looting in <City>. The governor activates the
National Guard to assist with security.
Day 9
8:00 a.m.
Volunteer groups arrive to help with recovery and relief efforts. <State> Emergency
Management Agency works to coordinate the response among the many groups
while considering the safety of the volunteers.
12:00 p.m.
Healthcare providers are responding to a sharp increase in patients with hurricaneand flood-related injuries and other health problems.
4:00 p.m.
The length of evacuation is uncertain. Families separated during the storm reunite via
websites, hotlines and missing persons databases.
Local and state public health agencies are monitoring environmental health
conditions related to the storm and subsequent flooding. Surveillance is ongoing to
track injuries and illnesses resulting from the storm. Public health nurses continue to
manage the special medical needs shelters.
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Facilitator’s Script: Hurricane
QUESTIONS
 When and how should you request Strategic National Stockpile (SNS) materiel?
A: Refer to CDC website: www.bt.cdc.gov/stockpile. Depending on the size and
strength of the storm, SNS requests may be submitted before the storm actually
makes landfall. Otherwise, the SNS should be requested as soon as the state or
territory realizes it lacks the resources to adequately respond to the public’s
medical and healthcare needs during the emergency. The governor of the affected
state or territory must request SNS. Federal officials at the Centers for Disease
Control and Prevention (CDC), Department of Homeland Security, and
Department of Health and Human Services will evaluate the request and determine
a course of action. Also refer to your agency’s plan to determine who is
responsible for receiving, tracking, storing, and distributing SNS materiel in your
area. Consider how long it will take for SNS supplies to arrive at the Point of
Dispensing (POD), and what plans are in place for mass medical care until they
arrive.
 What essential services might be impacted? How long will it take to restore them?
A: Severe flooding may result in contaminated drinking water and unsafe sewage
handling systems. These are immediate public health concerns and must be
addressed quickly. Loss of electricity will affect safe food supplies, healthcare
facility operations and other critical areas. Natural gas services may also be
interrupted. Flooding, downed trees and other debris in roads will make
transportation difficult. Telephone and other communications resources may be
unavailable. Absenteeism among employees of various agencies and companies
that provide essential services, including law enforcement, EMS and fire
departments, may also result in a shortage of essential services. Restoration of
services may vary from a few days to several weeks and even months. Each agency
must review its priorities and determine which services should be restored first and
where those efforts will be initially concentrated.
 What are the most prevalent health problems associated with hurricanes and
severe flooding?
A: Significant health risks may be posed when drinking water and sewage systems are
not working, or other conditions are present which make personal hygiene difficult
to maintain, such as overcrowded shelters. Infections that could result include
dysentery, diarrhea, salmonella, E. coli, norovirus and other gastrointestinal
illnesses, respiratory illness and hepatitis A. Skin infections, including woundrelated Vibrio illnesses, may result from exposure to contaminated floodwaters.
Other potential health problems include tetanus, allergic and toxic reactions
associated with mold, dehydration and other heat-related illnesses, and vectorborne diseases such as West Nile virus.
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Facilitator’s Script: Hurricane
QUESTIONS, cont.
 What is the role of the National Disaster Medical System (NDMS)?
A: The National Disaster Medical System (NDMS) is a federally coordinated system
that assists state and local authorities in delivering quality medical care to the
victims of – and responders to – a domestic disaster. Its three major functions are
1) medical response in the form of teams, supplies and equipment, 2) patient
movement from a disaster site to unaffected areas of the nation, and 3) definitive
medical care at participating hospitals in unaffected areas. The NDMS also
includes teams that focus on particular areas of disaster relief such as
decontamination, mortuary services, veterinary services and mass vaccinations.
 How are your agency’s volunteers coordinated?
A: Refer to your agency’s plan section on volunteers. Issues to be considered include
screening, registration, credentialing, temporary identification badges, skills
assessment, briefing, training, liability protection, housing, immunization status,
debriefing and management of volunteers during the event. For more information,
see guidelines for the Emergency Management Assistance Compact (EMAC) at:
www.bt.cdc.gov/planning/emac/resources.asp.
Resolution…
Additional volunteers arrive from around the country to help with cleanup and reconstruction.
Local, state and federal environmental agencies are still assessing decontamination and restoration
needs. Building inspections reveal evidence of widespread, severe mold infestation and structural
instability. Thousands are left homeless and need temporary and/or permanent housing.
Small businesses are hit especially hard and many are forced to close. Unemployment rates are
high. Some schools remain closed indefinitely.
Tourism is severely affected, adding to the economic stress endured by <City> and surrounding
areas.
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Facilitator’s Script: Hurricane
QUESTIONS
 How will your agency continue operations if your facilities are damaged?
A: Refer to your agency’s plan. Issues that might be discussed include whether the
agency has alternate sites designated in advance, whether there are written
agreements in place to use the alternate sites, how long it will take to move to the
facility and begin operations, how you will alert the public to the location and
hours of the new facility, etc.
 What services might evacuees need when displaced for longer than a few days?
A. Possible answers include: food, clothing, housing (both temporary and permanent),
health care for acute problems as well as chronic conditions, immunizations,
prescription refills, temporary schools, transportation for students to and from
school, temporary postal addresses, mental health counseling, financial assistance,
legal assistance, etc. Public health services include preventing disease from
spreading in shelters, assuring the safety of food and water supplies, controlling
mosquitoes, and increasing surveillance and laboratory testing in order to
recognize and address problems promptly.
 How do you establish environmental surety of the affected areas?
A: There are several phases of cleanup in response to natural disasters, including
debris assessment and management. Local public health will work with state and
federal agencies (e.g., Environmental Protection Agency, Centers for Disease
Control and Prevention, Department of Agriculture, etc.), as well as private
contractors on both short- and long-term environmental issues, including cleanup
and repair of water, sewage and other infrastructure systems, reduction (e.g.,
shredding, chipping), diversion (e.g., salvaging, recycling, reusing), and disposal
(e.g., landfilling, incinerating) of debris and hazardous materials, mold
remediation, managing potentially contaminated soil and sediment, rabies control,
insect and rodent control, and ongoing monitoring, sampling, and analysis to
ensure that conditions meet environmental statutory requirements, as well as to
identify and reduce potential public health and environmental risks. State and local
governments maintain primary jurisdiction, particularly with regard to cleanup,
even when federal agencies are involved.
 What might be some of the negative economic impacts on the community?
A: Consider both short-term and long-term impacts. They may include: decreased
revenue from tourism, businesses may close and not re-open, high unemployment,
reduced government services due to loss in tax revenues, falling property values
and extensive cleanup expenses. Conversely, certain businesses (building supplies,
construction, waste management, etc.) may experience a sharp increase in sales.
*** 15-minute break between the tabletop exercise and the hot wash ***
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Facilitator’s Script: Hurricane
Master the Disaster!
Hot Wash: Hurricane
Now let's look back at the exercise and see what we learned from this experience and how we can
use it to improve our overall response plan. This is your chance to provide some feedback on the
exercise and on how well you think we responded to the threat depicted in the scenario. Your
answers to the following questions should be based on how the participants in this room responded
to the situation depicted in the scenario according to the discussion we had after each episode, not
based on things that happened within the scenario itself. Everyone's input is important, so please
feel free to share your thoughts.
•
How do you think the exercise went overall?
•
What are three things that went well?
•
What are three things that could have gone better?
•
Were all of the exercise learning objectives met?
•
How well did we understand and perform critical tasks such as emergency assessment,
emergency management, mass victim care, epidemiology, risk communication, etc.?
•
What did we learn from this scenario?
•
What action steps do we need to take, based on the lessons learned?
•
Who is responsible for each of the action steps?
•
What is the expected completion date for each step?
*** Pass out participant and evaluator surveys ***
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