Final-Sitman Guam 5-30-08 Formatted2

S IT UA T ION MA NUA L
Pakyo’s Wrath
Guam 2008 Super Typhoon
Tabletop Exercise
June 2-3, 2008
June 2-3, 2008
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FOR OFFICIAL USE ONLY
P R E FA C E
The Guam 2008 Super Typhoon Tabletop Exercise (TTX), Pakyo’s (Pak-zu) Wrath, is sponsored
by the Guam Homeland Security and Office of Civil Defense (GHS/OCD) and the Federal
Emergency Management Agency (FEMA) Region IX. This situation manual (SitMan) was
produced with input, advice, and assistance from the Pakyo’s Wrath Exercise Planning Team,
which followed the guidance set forth in the FEMA Homeland Security Exercise and Evaluation
Program (HSEEP).
The SitMan for the Pakyo’s Wrath TTX provides exercise participants with all the necessary
tools for their roles in the exercise. The document is tangible evidence of Guam’s commitment
to ensure public safety through collaborative partnerships that will prepare the territory to
respond to any emergency.
Pakyo’s Wrath 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. Some
exercise material is intended for the exclusive use of exercise planners, facilitators, and
evaluators, but players may view other materials deemed necessary to their performance. The
SitMan may be viewed by all exercise participants.
All exercise participants should use appropriate guidelines to ensure the proper control of
information within their areas of expertise and to protect this material in accordance with current
jurisdictional directives. Public release of exercise materials to third parties is at the discretion of
the Pakyo’s Wrath Exercise Planning Team.
SitMan: Preface i Pakyo’s Wrath

SitMan: Preface ii Pakyo’s Wrath

H A NDL ING I NS T R UC T IONS

1. The title of this document is the Guam 2008 Super Typhoon Tabletop Exercise (TTX),
Pakyo’s (Pak-zu) Wrath, Situation Manual (SitMan).
2. The information in this SitMan is For Official Use Only (FOUO) and should be handled as
sensitive information not to be disclosed. This document should be safeguarded, handled,
transmitted, and stored in accordance with appropriate security directives. Reproduction of
this document, in whole or in part, without prior approval from GHS/OCD or FEMA Region
IX, is prohibited.
3. At a minimum, the attached materials will be disseminated only on a need-to-know basis and
when unattended, will be stored in a locked container or area offering sufficient protection
against theft, compromise, inadvertent access, and unauthorized disclosure.
4. For more information, please consult the following points of contact (POCs):
Name: Tanya Bejado
Training and Exercise Coordinator
Guam Homeland Security and Office of Civil Defense
221-B Chalan Palasyo
Agana Heights, Guam 96910
671-646-9600 or 671-646-9600 or 671-646-9601 (office)
671-483-0402 (cell)
tbejado@guamhs.org
Name: Fred Wehrenberg

National Preparedness Division, U.S. Department of Homeland Security
FEMA Region IX
1111 Broadway, Suite 1200
Oakland, CA 94607
510-627-7020 (office)
510-316-7636 (cell)
fred.wehrenberg@dhs.gov
SitMan: Handling Instructions iii Pakyo’s Wrath

SitMan: Handling Instructions iv Pakyo’s Wrath

C ONT E NT S
PREFACE ........................................................................................................................................ I
HANDLING INSTRUCTIONS ...............................................................................................................III
SECTION 1: EXERCISE OVERVIEW ............................................................................................... 1-1

Purpose and Scope ............................................................................................................... 1-1
Target Capabilities ................................................................................................................. 1-1
Exercise Objectives ............................................................................................................... 1-2
Participants ............................................................................................................................ 1-4
Exercise Structure.................................................................................................................. 1-5
Evaluation .............................................................................................................................. 1-7
Assumptions and Artificialities ............................................................................................... 1-8
SECTION 2: SCENARIO ................................................................................................................ 2-1
SECTION 3: RECORDS AND FORMS .............................................................................................. 3-1

Notes – Personal Response Roles ........................................................................................ 3-2
Action Item Workplan ............................................................................................................. 3-4
Participant Evaluation Form ................................................................................................... 3-5
Issue Card.............................................................................................................................. 3-7
SECTION 4: TABLETOP EXERCISE BRIEFINGS ............................................................................... 4-1
SECTION 5: BACKGROUND INFORMATION .................................................................................... 5-1

Acronyms ............................................................................................................................... 5-3
Guam Catastrophic All-Hazards Concept of Operatrions ....................................................... 5-7
Senior Leaders’ Intent .................................................................................................... 5-7
Guam All-Hazard Response Structure ........................................................................... 5-9
Guam Unified Coordination Group ............................................................................... 5-11
Incident Action Planning ............................................................................................... 5-13
Guam Emergency Support Function Matrix ................................................................. 5-15
Guam Emergency Response Plan (GERP)--Hazard Specific Annex A: Tropical Cyclones . 5-21
Hazard Specific Annex A - Tab A: Typhoon Checklist ................................................. 5-30
Hazard Specific Annex A - Tab B: Agency Preparation ............................................... 5-33
Department of Defense Conditions of Readiness ................................................................. 5-35
Tropical Cyclone Classifications ........................................................................................... 5-37
National Response Framework--Fact Sheet ......................................................................... 5-39
National Response Framework: Frequently Asked Questions.............................................. 5-40
Fact Sheet: National Incident Management System (NIMS)................................................. 5-49
SitMan: Contents v Pakyo’s Wrath

SitMan: Contents vi Pakyo’s Wrath

S E C T ION 1:
E XE R C IS E O V E R V IE W
The Guam 2008 Super Typhoon Tabletop Exercise (TTX), Pakyo’s (Pak-zu) Wrath, is designed
to familiarize appropriate organizations with the response community’s plans and capabilities for
responding to an emergency, and help them understand their roles and responsibilities in
planning and execution. This TTX provides participants an opportunity to evaluate current
response capabilities for a super typhoon in Guam. Further, this exercise will serve as the
Federal Emergency Management Agency (FEMA) Region IX annual hurricane preparedness
exercise.
The exercise will focus on assessing the new Guam Catastrophic All-Hazards Concept of
Operations Plan (CONOP) recently developed in coordination with the Government of Guam
(GovGuam) and FEMA Region IX to synchronize national, Territorial, regional, and local
response plans. In addition, this exercise will serve to strengthen our Federal, Territorial,
regional, local, international, and private-sector relationships and processes for responding to and
recovering from major incidents affecting Guam.
This notebook will provide you with background information related to the Pakyo’s Wrath TTX.
Purpose and Scope

Pakyo’s Wrath will bring together Federal, Territorial, local, and international government
organizations for a candid, solution-focused discussion regarding the compatibility of the new
Guam Catastrophic All-Hazards CONOP with other Territory, military, and national response
plans as well as local resources management issues and federal request processes for a super
typhoon incident.
The scenario is intended to stress the response system in order to focus discussions on areas that
may not have been explored sufficiently. The desired outcome is to advance the degree of
mutual understanding of the impacts of such a scenario as a means of developing plans and
solutions for future response efforts. Bringing together Federal, Territory, local, international,
and private-sector agencies periodically to review current plans and response and recovery
efforts is an effective way to build understanding, trust, and relationships that are essential in the
fast-paced operating environment of major disasters. The TTX requires each organization to
conceptualize operations under which the priorities, capabilities, and needs of all partners and
customers in disaster operations are synchronized over the operational continuum.
Target Capabilities
The National Planning Scenarios (NPS) and the establishment of the National Preparedness
Priorities have steered the focus of homeland security toward a capabilities-based planning
approach. Capabilities-based planning focuses on planning under uncertainty, since the next
danger or disaster can never be forecast with complete accuracy. Therefore, capabilities-based
planning takes an all-hazards approach that builds capabilities that can be applied to a wide
SitMan: Overview 1-1 Pakyo’s Wrath

variety of incidents. States and urban areas use capabilities-based planning to identify a baseline
assessment of their homeland security efforts by comparing their current capabilities against the
Target Capabilities List (TCL) and the critical tasks of the Universal Task List (UTL). This
approach identifies gaps in current capabilities and focuses efforts on identifying and developing
priority capabilities and tasks for the jurisdiction. These priority capabilities are articulated in
the jurisdiction’s homeland security strategy and Multi-Year Training and Exercise Plan, of
which this exercise is a component.
The capabilities listed below have been selected by the Pakyo’s Wrath Exercise Planning Team
from the priority capabilities identified in Guam’s Multi-Year Training and Exercise Plan. These
capabilities provide the foundation for development of the exercise objectives and scenario, as
the purpose of this exercise is to measure and validate performance of these capabilities and their
associated critical tasks.
 Common
− Planning
− Communications
− Community Preparedness and Participation
 Prevention
− Critical Infrastructure Protection
 Response
− Critical Resource Logistics and Distribution
− Emergency Operations Center (EOC) Management
− Emergency Public Safety and Security Response
− Citizen Evacuation and Shelter-in-Place
− Emergency Public Information and Warning
− Food and Agriculture Safety and Defense
− Volunteer and Donations Management
− Medical Surge
 Recovery
− Structural Damage Assessment
− Restoration of Lifelines
− Economic and Community Recovery
Exercise Objectives
Exercise design objectives are focused on improving understanding of a response concept,
identifying opportunities or problems, and/or achieving a change in attitude. The exercise will
focus on the following design objectives selected by the Exercise Planning Team:
1. Exercise the compatibility and coordination mechanisms of appropriate plans, including
the National Response Framework (NRF), Guam CONOP, Guam’s Emergency Response
Plan (GERP), and the National Incident Management System (NIMS) through
demonstration of the following:

a. Establish Unified Coordination Group (UCG) using Unified Command (UC) concepts
and principles, and verify its function and composition;
b. Validate the Guam Catastrophic All-Hazards CONOP, and verify the specific roles and
responsibilities of the Federal, Territory, local and private sector;
c. Validate the Emergency Support Function (ESF) structure in Guam and its functionality
within EOC/Joint Field Office (JFO); and
d. Ensure all stakeholders understand the Incident Action Planning process within NIMS.
2. Examine the process of information coordination between the GovGuam, other Federal
agencies, non-governmental agencies, and the private sector for response and initial
recovery operations by:
a. Ensuring all stakeholders (Federal, Territory, local, and private sector) understand the
Mission Assignment (MA) process; and
b. Ensuring an understanding of Essential Elements of Information (EEI) necessary to
establish a common operating picture (COP) among all stakeholders.
3. Identify response resources available to Guam in accordance with appropriate response
plans and procedures and identify gaps that exist in the process. Exercise the processes
for resource management during response and initial recovery phases of a catastrophic
incident.
4. Exercise the effectiveness of the Guam’s notification and communications systems
including:
a. The processes and procedures involved in coordinating and linking Department of
Defense (DoD) and the Territory’s Conditions of Readiness (COR);
b. The Emergency Alert System (EAS);
c. Alternative communications systems;
d. Guam’s interoperable communications capabilities; and
e. Integrated Federal; Territory, local, and private sector messaging via the Joint
Information Center (JIC).
5. Broaden an understanding of Defense Support of Civil Authorities and the Private Sector
through:
a. Recognition of the distinction between Title 32 and Title 10 support capabilities to
Territory, local, and private-sector entities and the request processes;
b. Recognition of the distinction between Immediate Response Authority, mutual aid
agreements, and Robert T. Stafford Disaster Relief and Emergency Assistance Act
(Stafford Act) requests for assistance; and
c. Ensuring Federal military and National Guard response activities are coordinated and
synchronized.
Overarching Exercise Objectives:

O.1. Awareness of Federal and State Capabilities: Broaden the understanding of regional
authorities and responders to the capabilities available from State and Federal agencies in
responding to terrorist attacks and natural disasters.
O.2. Local Resource Coordination: Determine strengths and weaknesses in the regional
coordination and integration of response resources. Identify critical issues and potential
solutions.

O.3. Mutual Aid Agreements: Review inter-jurisdictional mutual support compacts or

agreements (between adjacent communities, inter-state, and nationwide).
O.4. Implementation of External Assets: Examine factors involved in the request, receipt,
employment, and integration of external response assets by local Incident Command System
(ICS) protocols. Identify interoperability shortcomings that will impede the rapid assimilation of
external resources. Propose potential long-term solutions and short-term workarounds.
O.5. Deployment of External Resources: Develop an understanding of deployment
considerations for external resources, potential time delays in receipt of external support, and the
inherent effects at the local level.
Participants
 Players respond to the situation presented based on expert knowledge of response
procedures, current plans and procedures, and insights derived from training.
 Observers support the group in developing responses to the situation during the discussion;
however, they are not participants in the moderated discussion period.
 Facilitators provide situation updates and moderate discussions. They also provide additional
information or resolve questions as required. Key planning committee members may also
assist with facilitation as Subject Matter Experts (SMEs) during the TTX..
 Evaluators are SMEs who observe, evaluate and comment on designated functional areas of
the exercise and suggest recommendations. They have a passive role in the exercise and do
not interfere with exercise flow
The following table lists the agencies participating the TTX, Pakyo’s Wrath:
Entity
Federal
Federal Emergency Management Agency (FEMA) Transportation Security Administration (TSA)
U.S. Coast Guard (USCG) U.S. Department of Defense (DoD)
U.S. Attorneys Offices U.S. Environmental Protection Agency (EPA)
U.S. Department of Transportation (DOT) U.S. Small Business Association (SBA)
National Weather Services/National Oceanic & Department of Homeland Security Office of Infrastructure
Atmospheric Administration (NWS/NOAA) Protection (DHS OIP)
U.S Army Corps of Engineers (USACE) Center for Disease Control and Prevention (CDC)
U.S. Secret Service (USSS) National Communications System (NCS)
U.S. Department of Agriculture
Territory
Guam Homeland Security and Office of Civil Defense Mayors Council of Guam
(GHS/OCD)
Office of the Governor of Guam Guam Police Department (GPD)
Guam Department of Corrections Department of Public Health and Social Services (DPHSS)

Entity
Territory Cont’d
Guam National Guard Guam Memorial Hospital Authority (GMHA)
Guam Fire Department (GFD) Guam Customs and Quarantine Agency (CQA)
Guam Waterworks Authority (GWA) Guam Department of Agriculture (DOAG)
Guam Public School System (GPSS) Port Authority of Guam (PAG)
Guam Power Authority (GPA) Guam International Airport Authority (GIAA)
General Service Agency (GSA) Recovery Coordination Office
Department of Public Works (DPW) Guam Environmental Protection Agency (GEPA)
Bureau of Budget and Management Research (BBMR) Department of Administration
Regional
Commonwealth of Northern Marianas Islands (CNMI) CNMI Emergency Management Office
Office of Homeland Security
Private Sector
Guam Hotel and Restaurant Association (GHRA) GTA TeleGuam
Non-Governmental
American Red Cross (ARC) Salvation Army
Exercise Structure
The exercise methodology incorporates a scenario-based format with facilitated issue
identification and discussion. Players will be acting in their real-life roles when considering the
scenario, listening to special topic briefings, offering observations to the forum, and making
strategic and tactical decisions. This approach will allow discussion to focus on situations within
a moving timeline and for participants to contribute to the discussion from the perspective of
their roles in response. As the Lead Controller of the exercise, the facilitator will ensure that the
scenario moves along at an appropriate pace and that all participants have an opportunity to
contribute.
This exercise is an effective tool to improve emergency preparedness, and will:
 Focus on existing plans, policies, mutual-aid agreements, and procedures, as well as
strategic, policy-oriented issues;
 Enhance general awareness, validation of plans and procedures, and/or assessment of the
types of systems needed to guide response and recovery from a defined event;
 Provide a forum to assess the new Guam Catastrophic All-Hazards CONOP, recently
developed in coordination with GovGuam and FEMA to synchronize Federal, Territory, and
local response plans;
 Facilitate understanding of concepts, identify strengths and shortfalls, and achieve greater
participant understanding of roles and responsibilities;
 Familiarize participants with current or expected jurisdictional capabilities;
 Serve as a forum for developing new plans and procedures as opposed to operations-based
exercises that tend to focus more on tactical response issues; and
 Involve discussion with key staff, decision-makers, and elected and appointed officials.
During the course of the TTX, participants will be asked to address topics such as operational
plans, agency authorities, key decisions, and interagency coordination to successfully meet both

the short- and long-term needs resulting from a super typhoon. The facilitator will lead
participants through the TTX with the assistance of the TTX support team.
The scenarios will integrate existing issues as identified through discussions with the Exercise
Planning Team and collaborative exercise planning sessions. The plenary sessions aim to
achieve several of the overall objectives of the TTX and validate each of the target capabilities
by initiating the discussion and raising awareness of the requirements and shortfalls based on the
proposed scenarios. Topics will include, but are not limited to, new and existing emergency
response and operations plans; coordination between Federal, Territorial, regional, local,
international, and private-sector entities; resource availability to the island of Guam; and
resource requesting processes.
Exercise Ground Rules

The following exercise ground rules have been developed to ensure that the objectives are met in
a reasonable amount of time and that the TTX runs smoothly.
 Keep the exercise’s objectives in mind throughout the exercise.
 Treat the scenario incidents as real events. Play your appropriate role.
 Participate openly and focus discussions on appropriate topics. Asking questions, sharing
thoughts, and offering forward-looking, problem-solving suggestions are strongly
encouraged as these will enhance the exercise experience.
 Keep your comments focused and consider the time constraints.
 The discussions will explore policies, decisions, actions, and key relevant issues, which will
require participants to respect the observations, opinions and perspectives of others.
 Issues and procedures flowing from each move presented will be thoroughly discussed.
Game Periods and Special Topic Briefings

The TTX is composed of four game periods representing different preparedness, response, or
recovery phases of a super typhoon incident. During the course of each game period,
participants will be expected to discuss preparedness, response and short-term recovery actions
for the scenario. Each game period consists of a scenario briefing (which will update
participants on threats, impacts, and damage information, as well as preparedness, prevention,
response, and/or recovery activities occurring for that game period), facilitated discussions,
potential caucus sessions, and Special Topic Briefings. Caucus sessions will be periodically
offered to provide participants an opportunity to interact one-on-one with each other while
working to achieve specific outcomes focused on the progression of the scenario discussion. The
Special Topic Briefings will be presented throughout the TTX to provide information on special
interest topics, such as operating procedures or new initiatives. These briefings will be presented
by SMEs.
Special Topic Briefings include:

 An Overview of the NRF Changes;
 Guam Homeland Security EOC Vision;
 FEMA Pre-Missions Assignments (PSMAs) and Mission Assignments (MAs) Process;

 Sections of the Guam Catastrophic All-Hazards CONOP;

 Joint Knowledge Management;
 DisasterLAN; and
 Reestablishing Commerce and Port Reconstitution.
Exercise Control
Exercises will be controlled and guided by the facilitator. The facilitated TTX uses a scenario-
based approach to create the decision-making environment for participants to act in their roles.
This is a no-fault exercise that focuses on the identification and analysis of issues of common
concern.
An objective facilitator will lead participants through the activities surrounding the scenarios.
The facilitator is responsible for keeping discussions on track with exercise objectives and
ensuring that all issues are explored (time permitting). In general, the facilitator will:
 Keep side conversations to a minimum; keep discussions on track and within established
time limits; control group dynamics and strong personalities; and speak competently and
confidently about the subject at hand. The facilitator will not dominate the conversation;
 Possess subject-matter expertise relevant to the issues presented in the exercise; and
 Be aware of local plans and procedures.
After each presentation, the facilitator will solicit discussion on key activities and decisions that
individuals or organizations would perform in the specific scenario time period. Throughout the
exercise, the facilitator will press organizations to discuss their biggest challenges and make
commitments on how those challenges can be addressed.
Exercise Evaluation
Exercise evaluation is an essential element of a successful exercise program. The evaluation
portion is aligned with the established program metrics. Evaluations provide an objective
assessment of the participants’ discussions. They have been designed to support an assessment
of exercise objectives.
The goal of evaluation is to validate strengths and identify opportunities for improvement among
participating organizations. The evaluation methodology for TTXs focuses on the adequacy of
and familiarity with the jurisdiction’s plans, policies, procedures, resources, and
interagency/inter-jurisdictional relationships that support the performance of critical tasks
required to prevent or to respond to a super typhoon. Lessons learned during the exercise will
allow participants to update their current response plans and strategies as needed.
Issues Hot Wash

The challenges, issues, and decisions discussed during the TTX will be tracked by an Evaluation
Team. After the exercise, the Evaluation Team will report the key and recurring issues that were
captured during the exercise. An action-planning Hot Wash session will follow to encourage
participants to make observations about the issues, discussion, and decisions made. Once all

issues are presented, they will be categorized and ranked in a facilitated consensus-building
process.
At the conclusion of the TTX, a summary of activities, issue discussions, and decisions of the
exercise will be included in an after-action report (AAR). The AAR will be used to identify key
issues that need to be included for exercise play in future exercises. It will also catalog
remaining issues that were not addressed in this session but could be used as the springboard for
follow-on exercises and sessions.
Assumptions and Artificialities

In any exercise, a number of assumptions and artificialities may be necessary to complete play in
the time allotted. During this exercise, the following apply:
 The scenario is plausible, and events occur as they are presented;
 There is no “hidden agenda,” nor any trick questions;
 All players receive information at the same time;
 All past assumptions used to plan for Category 3 and 4 typhoons cannot be used in planning
and preparing for a Category 5 catastrophic incident; and
 Time jumps may be employed to discuss different aspects of the response cycle.

S E C T ION 2:
S C E NA R IO
Please insert your scenario handout in this section.
SitMan: Scenario 2-1 Pakyo’s Wrath

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SitMan: Scenario 2-2 Pakyo’s Wrath

S E C T ION 3:
R E C OR DS A ND F OR MS
The following records and forms are provided for your use during the exercise:
 Notes - Personal Response Roles—During the exercise, you may identify issues that
impede your job or opportunities that may improve your agency’s response to disasters or
other emergency incidents. This form will not be submitted to the exercise staff, but will be
a document for you to take back to your job.
 Action Item Workplan—The TTX Hot Wash session will discuss issues that were identified
during the exercise. This form will help you track issues for further discussion during the
exercise or Hot Wash. You will not be asked to turn in this form, but you may raise issues
during the Hot Wash session and may refer to your notes.
 Participant Evaluation Form—Participants will be asked to provide their evaluations of the
TTX in the feedback form, which should be submitted prior to leaving the event. Participant
input will help to improve future exercises.
 Issue Cards—A participant may use issue cards to raise a question, concern, or issue related
to the topics of discussion, but would like to remain anonymous, does not feel comfortable
asking a question aloud, or the schedule did not provide enough time for further discussion.
SitMan: Records and Forms 3-1 Pakyo’s Wrath

N OT E S – P E R S ONA L R E S P ONS E R OL E S
Guam 2008 Super Typhoon TTX
Pakyo’s Wrath
June 2-3, 2008
Throughout the discussion, use this form to identify issues that require resolution so you may
effectively perform your personal response roles.
What additional concepts or procedures do I need clarified?
1. _____________________________________________________________________
_____________________________________________________________________
2. ____________________________________________________________________
____________________________________________________________________
3. ____________________________________________________________________
____________________________________________________________________
Other: ____________________________________________________________________
____________________________________________________________________
What changes or additions to existing plans or procedures are necessary to support or

clarify my personal role or the role of my agency?
1. _____________________________________________________________________
_____________________________________________________________________
2. _____________________________________________________________________
_____________________________________________________________________
3. _____________________________________________________________________
_____________________________________________________________________
Other: ____________________________________________________________________
____________________________________________________________________

What additional briefings or formal training does my agency need?
1. ____________________________________________________________________
____________________________________________________________________
_____________________________________________________________________
2. _____________________________________________________________________
______________________________________________________________________
______________________________________________________________________
3. _____________________________________________________________________
_____________________________________________________________________
_____________________________________________________________________
Other: ____________________________________________________________________
____________________________________________________________________
____________________________________________________________________
____________________________________________________________________
What equipment, information resources, space, or support staff are needed to support my
personal responsibilities?
1. _____________________________________________________________________
_____________________________________________________________________
_____________________________________________________________________
2. ____________________________________________________________________
_____________________________________________________________________
_____________________________________________________________________
3. _____________________________________________________________________
______________________________________________________________________
_____________________________________________________________________
Other: ____________________________________________________________________
____________________________________________________________________
_____________________________________________________________________
_____________________________________________________________________

A C T ION I T E M W OR K P L A N
Guam 2008 Super Typhoon TTX
Pakyo’s Wrath
June 2-3, 2008
ACTION RESPONSIBILITY TIME FRAME
1.
2.
3.
4.
5.
6.
7.
8.
9.

P A R T IC IP A NT E V A L UA T ION F OR M
The Guam 2008 Super Typhoon TTX
Pakyo’s Wrath
June 2-3, 2008
Participant Name: ___________________________ Title: ___________________________
Agency: ________________________ Role: __Player __Observer __Evaluator
Part I – Recommendations and Action Steps
1. Based on the exercise objectives and the capabilities being validated, list the top 3 issues and/or areas
that need improvement.
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
2. Identify the action steps that should be taken to address the issues identified above. For each action
step, indicate if it is a high, medium, or low priority.
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
3. Describe the action steps that should be taken in your area of responsibility. Who should be assigned
responsibility for each action item?
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
4. List the equipment, training, or plans/procedures that should be reviewed, revised, or developed.
Indicate the priority level for each.
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________

Part II – Exercise Design and Conduct
1. What is your assessment of the exercise design and conduct?

Please rate, on a scale of 1 to 5, your overall assessment of the exercise relative to the statements
provided below, with 1 indicating strong disagreement with the statement and 5 indicating strong
agreement.
Rating of Satisfaction with Exercise

Strongly Strongly
Assessment Factor Disagree Agree
a. The exercise was well structured and organized. 1 2 3 4 5
b. The exercise scenario was plausible and realistic. 1 2 3 4 5
c. The documentation used during the exercise was a

1 2 3 4 5
valuable tool throughout the exercise.
d. Participation in the exercise was appropriate for

1 2 3 4 5
someone in my position.
e. The participants included the right people in terms of

1 2 3 4 5
level and mix of disciplines.
2. What changes would you make to improve this exercise?

Please provide any recommendations on how this exercise or future exercises could be improved
or enhanced.
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
________________________________________________________________________________
Thank you for your feedback. Please make sure to provide your completed form to
someone on the exercise support staff before you leave the exercise.

I S S UE C A R D
Issue Card
This Issue Card is provided for you to present any issue you would like raised during the tabletop exercise.
Please fill out the card and hand it to one of the exercise support staff.
Topic:
Issue:
Recommendation:
Issue Card
This Issue Card is provided for you to present any issue you would like raised during the tabletop exercise.
Please fill out the card and hand it to one of the exercise support staff.
Topic:
Issue:
Recommendation:


S E C T ION 4:
T A B L E TOP E XE R C IS E B R IE F ING S
The following briefings are being presented during the Guam 2008 Super Typhoon TTX,
Pakyo’s Wrath. Copies of these presentations are provided in this section.
 Overview of the National Response Framework Changes;
 Guam Homeland Security Emergency Operations Center Vision;
 FEMA Pre-Scripted Mission Assignments and Mission Assignment Process;
 Sections of the Guam Catastrophic All-Hazards Concept of Operations;
 Joint Knowledge Management;
 DisasterLAN; and
 Reestablishing Commerce and Port Reconstitution.
SitMan: TTX Briefings 4-1 Pakyo’s Wrath

SitMan: TTX Briefings 4-2 Pakyo’s Wrath

S E C T ION 5:
B A C K G R OUND I NF OR MAT ION
 Acronyms
 Guam Catastrophic All-Hazards Concept of Operations (CONOP)
− Senior Leaders’ Intent
− Guam All-Hazard Response Structure
− Guam Unified Coordination Group
− Incident Action Planning
− Guam Emergency Support Function Matrix
 Guam Emergency Response Plan (GERP) – Hazard Specific Annex A: Tropical Cyclones
− Hazard Specific Annex A – Tab A: Typhoon Checklist
− Hazard Specific Annex A – Tab B: Agency Preparation
 Guam Homeland Security/Office of Civil Defense Conditions of Readiness
 Department of Defense Conditions of Readiness
 Tropical Cyclone Classifications
 National Response Framework (NRF)--Fact Sheet
 National Response Framework: Frequently Asked Questions
 Fact Sheet: National Incident Management System (NIMS)
SitMan: Background Investigation 5-1 Pakyo’s Wrath

SitMan: Background Investigation 5-2 Pakyo’s Wrath

A C R ONY MS
AAR After-Action Report
AAFB Anderson Air Force Base
A.G. Office of the Attorney General
ARC American Red Cross
ARF Action Request Form
BBMR Bureau of Budget and Management Research
CoA Course of Action

CDC Centers for Disease Control and Prevention
CI/KR Critical Infrastructure/Key Resources
CONPLANS Contingency Plans
CONOP Concept of Operations
COP Common Operating Picture
COR Conditions of Readiness
CQA Guam Customs and Quarantine Agency
DCO Defense Coordinating Officer

DHHS U.S. Department of Health and Human Services
DHS OIP Department of Homeland Security Office of Infrastructure
Protection
DISC Disaster Information Systems Clearinghouse
DISID Department of Integrated Services for Individuals with Disabilities
DLM Department of Land Management
DMHSA Guam Department of Mental Health and Substance Abuse
DPHHS Department of Public Health and Social Services
DOA Department of Administration
DOAG Guam Department of Agriculture
DoD U.S. Department of Defense
DOE U.S. Department of Energy
DOI U.S. Department of the Interior
DOJ U.S. Department of Justice
DOL Department of Labor
DOS U.S Department of State
DOT U.S. Department of Transportation
DPR Department of Recreation
DPW Guam Department of Public Works
EAS Emergency Alert System

EEI Essential Elements of Information
EFT Electronic Fund Transfer
EMD Emergency Medical Department
SitMan: Background Information 5-3 Pakyo’s Wrath

EMAC Emergency Management Assistance Compact

EOC Emergency Operations Center
EPA U. S. Environmental Protection Agency
ERT Emergency Response Team
ESF Emergency Support Function
F/A Finance/Administration
FCO Federal Coordinating Officer
FEMA Federal Emergency Management Agency
FSE Full-Scale Exercise
FSM Federated States of Micronesia
FOUO For Official Use Only
GCC Guam Community College

GEPA Guam Environmental Protection Agency
GERP Guam Emergency Response Plan
GFD Guam Fire Department
GHRA Guam Hotel and Restaurant Association
GHS/OCD Guam Homeland Security and Office of Civil Defense
GHURA Guam Housing and Urban Renewal Agency
GIAA Guam International Airport Authority
GIS Geographic Information Systems
GMHA Guam Memorial Hospital Authority
GovGuam Government of Guam
GPA Guam Power Authority
GPD Guam Police Department
GPS Global Positioning System
GPSS Guam Public School System
GSA General Services Agency
GTA GTA TeleGuam
GUNG Guam National Guard
GVB Guam Visitor’s Bureau
GWA Guam Waterworks Authority
HSA Homeland Security Advisor

HSEEP Homeland Security Exercise and Evaluation Program
IA Individual Assistance
IC Incident Commander
ICS Incident Command System
IMAT Incident Management Assistance Team
IOF Initial Operating Facility
IONS Incident of National Significance
IRR Initial Response Resources
JFO Joint Field Office

JIC Joint Information Center

JOC Joint Operations Center
JTF Joint Task Force
kts Knots
LC Logistics Center
LOG Logistics
LPG Liquefied Petroleum Gas
MA Mission Assignment
MARAD Maritime Administration
MCOG Mayor’s Council of Guam
MIRP Maritime Infrastructure Recovery Plan
MOA Memorandum of Agreement
MOU Memorandum of Understanding
MPH Miles Per Hour
MTA Guam Mass Transit Authority
MTSRU Maritime Transportation System Recovery Unit
NCS National Communications System

NGO Non-Governmental Organization
NIMS National Incident Management System
nm Nautical Mile
NOAA National Oceanic and Atmospheric Administration
NPS National Planning Scenarios
NRCC National Response Coordination Center
NRF National Response Framework
NWS National Weather Service
OCME Office of the Chief Medical Examiner

OFA Other Federal Agency
OPS Operations
OSO Other Senior Official
PA Public Assistance
PAG Port Authority of Guam
PFO Principal Federal Official
PLN Planning
POC Point of Contact
PSMA Pre-Scripted Mission Assignment
RAC Response Activity Coordinator

RMI Republic of Marshall Islands
RRCC Regional Response Coordination Center

SCO State Coordinating Officer

SCOG Supreme Court of Guam
SBA U.S. Small Business Administration
SFLEO Senior Federal Law Enforcement Official
SitMan Situation Manual
SME Subject-Matter Expert
TAG The Adjunct General

TB Tuberculosis
TCL Target Capabilities List
TOPOFF Top Officials Exercise
TSA Transportation Security Administration
TTX Tabletop Exercise
UC Unified Command
UCG Unified Coordination Group
USACE U.S. Army Corps of Engineers
USCG U.S. Coast Guard
USFS U.S. Forest Service
USN U.S. Navy
UOG University of Guam
US&R Urban Search & Rescue
USSS U.S. Coast Guard
UTL Universal Task List
VOAG Volunteer Agencies

Guam All-Hazards Catastrophic CONOP Base Plan, p.11-12
G UA M C A T A S T R OP HIC A L L -H A ZA R DS C ONC E P T OF
O P E R A T IONS
Senior Leaders’ Intent
It is the intent of the senior leadership of the Government of Guam (GovGuam) and the Federal
agencies responsible for response efforts to a catastrophic incident in Guam, as represented by
the Governor’s Homeland Security Advisor, the Administrator of the Guam Office of Civil
Defense, and the Administrator of Federal Emergency Management Agency (FEMA) Region IX,
to immediately establish a Unified Coordination Group (UCG) in accordance with the National
Response Framework (NRF) and in keeping with the principles of the National Incident
Management System (NIMS) and the Incident Command System (ICS) including:
 Unity of effort: Using Unified Command principles ensure that Territory and Federal
objectives, priorities, and operations are aligned and that direction from the decision making
of senior officials results in effective allocation, integration, and utilization of resources at
the field level.
 Maintenance of existing authorities and responsibilities: The organizations participating in or
supporting the UCG and the Incident Management Assistance Team (IMAT) do not give up
their respective authorities and responsibilities under Territory and Federal laws and
regulations.
 Consistency with the principles of NIMS and ICS: The UCG and IMAT direct the efforts of
the joint Territory/Federal organization, initially at the EOC and subsequently at the JFO.
These operations are organized according to NIMS and ICS principles. The structure is
scalable and flexible so that it can be adapted to the specific circumstances of the incident in
question.
In accordance with these principles, the UCG will coordinate response efforts towards the
following goals:
 Save and sustain life.
 Ensure responder health and safety.
 Protect public health and safety.
 Minimize damage to and protect property.
 Provide for basic human needs and mass care to include:
− Food
− Water
− Emergency medical care and services
− Shelter
− Power Generation
 Stabilize critical infrastructure and key resources essential to the operation of the economy
and the government
 Create conditions in the affected area that allow re-entry, repopulation, long-term recovery,
and future hazard mitigation.

Guam All-Hazards Catastrophic CONOP Base Plan, p.11-12

Guam All-Hazards Catastrophic CONOP Base Plan, p.23


Guam Unified Coordination Group

This joint Territory/Federal response will be led by the Unified Coordination Group (UCG). The
UCG will be formed at the Guam Emergency Operations Center (EOC), then migrates to the
Joint Field Office (JFO) when that facility can provide required functionality to support response
and recovery operations.
Once Guam HS/OCD and FEMA agree to the formation of the Unified Coordination Group, the
separate functions of the EOC and RRCC are incorporated into the Unified Coordination Group
structure. To ensure unity of effort, the JFO ultimately becomes the focal point for Territory
operations, including those functions that would otherwise be performed at the EOC.
The UCG’s roles and responsibilities include the following:

 Provide leadership for all Territory and Federal agencies providing response to the incident
and ensure unity of effort;
 Direct combined Territory and Federal operations based on priorities set by the Governor of
Guam and the President of the United States through incident action planning;
 Implement policy decisions made by appropriate Territory and Federal policymaking entities;
 Serve as the structure to integrate the efforts of senior Territory and Federal leaders engaged
in response and recovery operation by developing and prioritizing objectives for the joint
response to the incident;
 Approve tasking of Territory and Federal agencies and coordination with non-governmental
and private-sector organizations; and
Note: The UCG will not assume responsibility for tactical and field-level Incident Command
functions.
The core of the Unified Coordination

Group may include:
 Principal Federal Official (PFO)
 Governors Homeland Security
Advisor (HSA)
 Federal Coordinating Officer (FCO)
 State Coordinating Officer (SCO)
 Defense Coordinating Officer (DCO)
 GANG Adjutant General (TAG)
 Senior Federal Law Enforcement
Official (SFLEO)
 Representatives of other agencies/organizations as required


GUAM ALL-HAZARDS CATASTROPHIC CONOP BASE PLAN, P.31-32
Incident Action Planning

The Incident Command System (ICS) emphasizes orderly and systemic planning. The Incident
Action Plan (IAP) is the central tool for planning during the response to and initial recovery from
an incident. The Incident Action Planning process used to prepare the IAP is a key component
for ensuring effective integration of Territory and Federal resources and unity of effort. Through
this process, a common set of incident objectives is developed and resources assigned to
effectively meet those objectives.
Cross-functional collaboration is critical to the process. Incident action planning ensures that:
 Objectives across functional areas do not conflict;
 Resources are not double-committed or duplicated; and
 Transportation and logistics elements are not double-committed or duplicated.
The joint IAP identifies the incident objectives established for the integrated Territory/Federal
operation and addresses specific tactical actions and supporting information for each operational
period, generally 24 hours.

GUAM ALL-HAZARDS CATASTROPHIC CONOP BASE PLAN, P.31-32

Guam All-Hazards Catastrophic CONOP Base Plan, Annex E






Guam Emergency Response Plan, Annex A
G UA M E ME R G E NC Y R E S P ONS E P L A N (G E R P )
HAZARD SPECIFIC ANNEX A

TROPICAL CYCLONE (I.E., STORMS AND TYPHOONS)
Primary Agency: Guam Homeland Security/Office of Civil Defense (GHS/OCD)

Support Agency: All Agencies
I. Nature of Hazard
Severe weather systems include thunderstorms and tropical cyclones. A tropical cyclone is a
general term for all large circulating weather systems over tropical waters. Tropical cyclones are
classified by their intensity and include Tropical Depressions, tropical Storms, Typhoons and
Super Typhoons. 70% of the world’s tropical cyclones form in this region of the Pacific.
Tropical cyclones can strike Guam anytime throughout the year. A tropical cyclone becomes
“significant” with the issuance of the first numbered warning by Joint Typhoon Warning Center
as reported by the National Weather Service, Guam. Tropical cyclones in the intensity
classifications of Tropical Storms, Typhoon and especially Super Typhoons can cause severe
damage and destruction to property and infrastructure as well as cause injuries or death. The
longer a tropical cyclone remains near or over Guam the more potential exists for severe
damages as structures weaken from extended wind stress, flooding increases and storm surges
batter the shores. A tropical storm lingering over Guam for ten hours can sometimes cause more
damage and destruction than a typhoon that quickly passes over Guam.
Severe winds are generally categorized into two groups, “damaging winds” and “destructive
winds”. “Damaging winds” is defined as sustained winds with average speeds between 39 to 57
mile per hour (mph). “Destructive winds” has an averaged sustained wind speeds 58MPH and
above. Weak Tropical Storms generate damaging winds. Severe Tropical Storms, Typhoons and
Super Typhoons generate destructive winds.
As a typhoon approaches, the weather could be clear until just a few hours before it strikes
Guam, at which time the skies will begin to darken and winds will grow in strength. As a
typhoon nears land, in addition to destructive winds, we are very concerned about the dangers of
torrential rains and storm surges. A single typhoon can last for more than 2 weeks over open
waters and can run a path across the entire length of the Western Pacific. Typhoon season runs
from the 1st of June until the end of November. Yet, typhoons have occurred in every month of
the year. Typhoon winds blow in a large spiral around a relative calm center known as the “eye”.
The “eye” is generally 20 to 30 miles wide with an “eye wall”, the immediate perimeter of the
“eye”, having the strongest winds. However with large typhoons damaging winds may extend
outward 400 miles. Although the weather can be calm within the “eye”, the backside of the “eye
wall” can be expected without warning with destructive winds coming from the opposite
direction.

A. Hazard Agents
The primary Hazard Agents associated with tropical cyclones are the high, sustained winds;
flooding from storm surge or heavy rains; battering from heavy waves; and a variety of
secondary hazards.
• High Winds: The high winds impose significant stress loads on structures, both direct
wind pressure and drag, and tend to propel loose objects at high velocity.
• Flooding: Tropical cyclones can cause many different types of flooding. Along the
shorelines, the flooding may occur from storm surge, wind-driven water in estuaries and
rivers, or torrential rain. The flooding can be still water flooding or velocity flooding
caused by wave action associated with wind driven water along the shoreline. The rainfall
associated with some tropical cyclones is on the order of 6 to 12 inches, with higher
levels common. The rain may precede tropical cyclone landfall by hours and may persists
for many hours after landfall, causing severe flooding.
• Heavy Waves: The tropical cyclone can also cause numerous secondary hazards. Electric
power outages are common. Contamination of water supplies, flooding of sewage
treatment facilities, and even telephone system failure may occur.
II. Purpose
The purpose of this annex is to provide and identify actions to take

• Prior to
• During, and
• Immediately following a tropical cyclone forecasted to or already impacting the island.
III. Situation and Assumptions
A. Situation
The formation of a Tropical Disturbance can intensify into a Tropical Cyclone (e.g, Tropical
Depression, Tropical Storm (Categories A or B), or Typhoon (Categories 1 through 5)
impacting Guam in less then 72 hours (3 days) However, there have been cases of
intensification into a typhoon in only 30 hours. Tropical Cyclone development and
intensification can begin right over Guam. The premise of this annex starts with the
misunderstanding that Guam may receive damaging winds (39 mph sustained winds or
higher) anytime of the year within 72 hours of a tropical cyclone development. The threshold
for activation of this plan and annex for government-wide preparedness and response actions
is based on the landfall of damaging winds on Guam. However the Office of Civil Defense,
under case-specific direction of the Governor, may provide limited warnings or
department/activity specific precautionary actions on a lower threshold such as the onset of
damaging winds (39-57 mph sustained winds) or a severe thunderstorm.
The Joint Typhoon Warning Center (JTWC), based in Hawaii, provides track and intensity
forecasts for all tropical cyclones in our region. The National Weather Service (NWS), Guam

evaluates JTWC forecasts for potential effects upon United States interests in the region and
issues public announcements/advisories about these threats, including thunderstorms. NWS
broadcasted information and public media releases include classification (i.e., Thunderstorm,
Tropical Disturbances, Tropical Depressions, Tropical Storm Categories, or Typhoon
Categories), position, wind strength, precipitation, wave height, and forecast of direction and
intensity. The NWS
uses the key words, alert, watch and warning, in this order, to describe the increasing concern
of a severe weather system approaching Guam. A NWS “alert” announcement indicates that
the severe weather system formation has started. A NWS “watch” announcement indicates
that the severe weather system poses a possible threat generally within 48 hours. A NWS
“warning” announcement indicates that severe weather impacts are expected from the
approaching weather system within 24 hours. The general public, especially those living in
substandard constructed homes, and organizations with planned events may pay special
attention to these NWS Alerts, Watches and Warnings. In addition to messages released
through the islands Emergency Alert System.
1. NWS Tropical Cyclone classifications.
1) Tropical Disturbance or Tropical Cyclone Formation Alert. Not a tropical cyclone

but an area with the potential for development into a tropical cyclone.
2) Tropical Depression. A tropical cyclone with maximum sustained winds of 38
mph or less. At this classification, a tropical cyclone number is assigned.
3) Tropical Storm Category A (weak tropical storm). A tropical cyclone with
maximum sustained winds within the range 30-49 mph. Peak gusts are 40-64
mph. At this classification, a tropical cyclone name is assigned, usually after a
tropical cyclone’s maximum sustained wind speed 39 mph (causing damaging
winds) or higher. A Tropical Depression is within the Category A Tropical Storm
classification but does not generate damaging winds and does not usually have a
name assigned yet. Typical potential damage from a category A Tropical Storm
includes damage done to only the flimsiest lean to type structures; unsecured light
signs blown down; minor damage to banana trees and near costal agriculture,
primarily from salt spray; some small dead limbs, ripe coconuts, dead palm
fronds, papaya leaves blown from trees.
4) Tropical Storm Category B (severe tropical storm). A tropical cyclone with
maximum sustained winds within the range 50-73 mph. Peak gusts are 65-94
mph. A category B Tropical Storm generates damaging winds when its sustained
winds reach 58 mph or higher. Typical potential damage from a category B
Tropical Storm includes minor damage to building of light materials; major
damage to huts made of thatch, or loosely attached corrugated metal or plywood;
un attached corrugated sheet metal and plywood may become airborne, wooden
signs not supported with guy wires blown down moderate damage to banana
trees, papaya trees and most fleshy crops and large dead limbs, ripe coconuts,
many dead palm fronds, some green leaves and small branches blown from trees.
5) Typhoon Category 1 (minimal typhoon). A tropical cyclone with maximum
sustained winds within the range of 74-95 mph. Peak gusts are 95-120 mph.
Usually “eye” formation begins in a typhoon. Typical Potential Damage to a

Category 1 Typhoon includes corrugated metals and plywood stripped from

poorly constructed or termite-infested structures and may become airborne; a few
wooden, non-reinforced power poles tilted, and some rotten poles broken; some
damage to poorly constructed, loosely attached signs; major damage to banana
trees, papaya trees and freshly crops; some young trees downed when the ground
is saturated; some palm fronds crimped and bent back and many ripe coconuts
blown down; less that 10% defoliation of shrubbery and trees; up to 10%
defoliant of tangantangan; and some small tress limbs downed such as mango;
African tulip and acacia. Overall damage can be classified as minimal.
6) Typhoon Category 2 (moderate typhoon). A tropical cyclone with maximum
sustained winds within the range of 96-110 mph. Peak gusts are 121 – 139 mph.
Typical potential damage from a Category 2 Typhoon includes several rotten
wooden power poles snapped and many non-reinforced wooden poles tilted; some
secondary power lines downed; damage to wooden and tin roofs but no damage to
well constructed wooden, sheet metal, or concrete buildings; considerable damage
to structures made of light materials; major damage to poorly constructed,
attached signs; exposed banana trees and papaya trees totally destroyed; 10-20%
defoliation of trees and shrubbery; up to 30% defoliation of tangantangan ; light
damage to bamboo; many palm fronds crimped and bent and several green fronds
ripped from palm trees; some green coconuts blown from trees; and some trees
blown down, especially shallow rooted ones such as acacia, mango, and breadfruit
when the ground becomes saturated. Overall damage can be classified as
moderate.
7) Typhoon Category 3 (strong typhoon). A tropical cyclone with maximum
sustained winds within the range of 111-130 mph. Peak gusts are 140-167 mph.
Typical potential damage from a Category 3 Typhoon includes a few non –
reinforced hollow spun concrete power poles broken or tilted and many non
reinforced wooden poles broken or blown down; many secondary power lines
downed; practically all poorly constructed signs blown down; some stand – alone
steel framed signs bent over; some roof, window, and door damage to well built,
wooden and metal residences and utility buildings; non-reinforced cinderblock
walls blown down; many buildings made of light materials destroyed; minimal
glass window failure due to pressure forces associated with extreme gusts; chain
link fences begin to blow down; light cars begin to be moved and occasionally
overturned; a few high-paneled vehicles (buses, vans, etc.) blown over; some
unsecured construction cranes blown down; air is full of light projectiles and
debris; major damage to shrubbery and trees; 50% palms fronds bent or blown
off; numerous ripe and green coconuts blown off coconut palms; crowns blown
off a few palm trees; up to 10% of coconut palms blown down; moderate damage
to bamboo; some large trees like breadfruit, monkeypod mango, acasia, and
Australian pines blown down when the ground becomes saturated; 30% - 50%
defoliation of many trees and shrubs; 70% defoliation of tangantangan. Overall
damage can be classified as extensive.
8) Typhoon Category 4 (very strong). A tropical cyclone with maximum sustained
winds within the range of 131-155 mph. Peak gusts are 168-197 mph. When a
category 4 typhoon generates sustained winds of 150 miles or greater it is called a

super typhoon. Typical potential damage from a category 4 typhoon includes

some reinforced hollow-spun concrete and many reinforced wooden power poles
blown down; numerous secondary and a few primary power lines downed;
extensive damage to non-concrete roofs; complete failure to many roof structures,
window frames and doors; many well-built wooden and metal structures severely
damaged or destroyed; considerable glass failures due to flying debris and
explosive pressure forces created by extreme wind gusts; weakly reinforced
cinderblock walls blown down; complete disintegration of structures made of
light materials; most small and medium – sized steel – framed signs bent over or
blown down; some secured construction cranes and gantry cranes blown down;
some fuel storage tanks may rupture; air is full of large projectiles and debris;
shrubs and trees 50-90% defoliated; up to 100% tangantangan defoliated; 75% of
palm fronds bent or blown off; many crowns stripped from palm trees; numerous
green and virtually all ripe coconuts blown from trees; severe damage to bamboo;
many large trees blown down ( palms, breadfruits, mango, monkeypod, acasia,
and Australian pines); considerable bark stripped from trees; most standing trees
are void of all but the larges branches, with remaining branches stubby in
appearance; numerous trunks and branches are sand blasted; and patches of
panax, tangantangan and oleander bent over or flattened. Overall damage can be
classified as extreme.
9) Typhoon Category 5 (devastating). A tropical cyclone with maximum sustained
winds within the range of 156-194 mph. Peak gusts are 198-246 mph. Typical
potential damage from a category 5 typhoon include severe damage to some solid
concrete power poles, to numerous reinforced hollow-spun concrete power poles,
to many steel towers and virtually all wooden poles; virtually all secondary and
most primary power lines downed; total failure of non-concrete residences and
industrial buildings; some structural damage to concrete structures, especially
from large debris, such as cars, large appliances, etc; extensive glass failure due to
impact from flying debris and explosive pressure forces during extreme gusts;
many well constructed storm shutters ripped from structures; some fuel storage
tanks rupture; nearly all construction cranes blown down; air full of very large
and heavy projectiles and debris; shrubs and trees up to 100% defoliated;
numerous large trees blown down; up to 100% palm fronds bent or blown off;
numerous crowns blown from palm trees; virtually all coconuts blown down from
trees; most barks stripped from trees; and most standing trees are void or all but
the largest branches, which are very stubby in appearance and severely sand
blasted. Overall damage can be classified as catastrophic.
The GHS/OCD partners with the NWS and the military to receive advance and direct
forecasts of severe weather threatening Guam. In the interest of public safety, the GHS/OCD
incorporates JTWC / NWS tropical cyclone track prediction uncertainty risk in to the
decision making process.
When forecasts of strong thunderstorms or damaging winds are received, the GHS/OCD,
upon coordination with the Governor, may direct certain situation specific preparedness
actions which may be impacted by the severe weather (e.g., cancel a government event, close

government schools early, etc.) without disruption to overall government operations.

Damaging winds may be generated by tropical storms A or B.
When forecasts of destructive winds threatening Guam are received, the GHS/OCD directs
government-wide preparedness or response actions which may affect the entire island’s
population and businesses. Destructive winds can be generated by either Strong Category B
Tropical Storms or Typhoons.
Government-wide preparedness or response actions are organized into four action levels, or
Tropical Cyclones Conditions of Readiness (COR). These levels are called Conditions of
Readiness, not “Typhoon Conditions” or “Tropical Storm Conditions” These conditions are
implemented or set by the Governor through the GHS/OCD in consultation with the Military.
The setting of each Condition Of Readiness is based on the forecasted onset of Damaging
winds as follows:
COR 4 (normal 72 hours). Damaging winds (39 mph sustained winds or higher) impacting
the island are possible within 72 hours. Due to the risk of tropical cyclones developing and
impacting the island with damaging winds within 72 hours any part of the year, the normal
COR on Guam is level 4.
COR 3 (within 48 hours). Damaging winds impacting the island are possible within 48 hours.
COR 3: government-wide preparedness checklists are initiated usually prior to the setting of
COR 3 in order to complete all COR 3 checklists before COR 2 is set.
COR 2 ( within 24 hours). Damaging winds impacting the island are possible within 24
hours. COR 2: government-wide preparedness checklists are initiated usually prior to the
setting of COR 2 in order to complete all COR 2 checklists before COR 1 is set. COR 1
checklists, especially outdoor requirements, are completed simultaneously with COR 2
requirements.
COR 1 (within 12 hours of occurring). Damaging winds are expected within 12 hours or are
occurring. No outdoor activities allowed, except for extreme emergencies.
Upon the departure of a tropical cyclone’s damaging wind threat and significant safety
concerns are resolved (e.g., major roads are cleared of hazards), the island is returned to the
COR 4 level to allow immediate short term, recovery actions to begin.
B. Assumptions
The most predictable natural disaster on Guam is the Tropical Cyclone. The vulnerability to
the people and property on Guam is 100%. Therefore, the entire population, public and
private, must prepare for the event to minimize injury and damage, and to better implement
recovery.
Advance and direct severe weather predictions will be provided by NWS and with partnering
military weather service of U.S. Naval Forces Marianas. Upon establishment of COR

settings, coordinated preparation activities by the public, private, and military sectors will be
conducted. The GHS/OCD will keep the Office of the Governor informed and appropriate
actions will be taken to reduce the damaging wind effect on island residents, businesses,
commerce and the island infrastructure.
Due to Guam’s geographic isolation, off-island assistance may not be available for at least 72
hours. Therefore, the island community must work together and utilize all available local
resources.
Tropical Cyclone Conditions of Readiness are set at the authority of the Governor in
coordination with the military represented by U.S. Naval Forces Marianas. The setting of
CORs may not be exactly correlated with established time periods (could be set either before
or after established time periods) in order to put into account case specific safety or economic
situations. CORs may not be set in consecutive order and may even be reversed as needed to
adapt to rapidly changing tropical cyclone data.
The Governor, through the GHS/OCD, has the authority to modify, delete or add to any
established contingency checklist or procedure, for the purpose of adapting or balancing
government actions to needs and risk. Such changes, when necessary, will be publicly
announced.
IV. Concept of Operations
The GHS/OCD will manage all EOC activations in response to Tropical Cyclone events in line
with the National Incident Management System, with planning consideration transitioning EOC
stakeholders with the National Response Framework concept of operations. All response
agencies will be recalled at COR 3, activated at COR 2 and report to the Emergency Operation
Center (EOC) at the Office of Civil Defense for heavy weather briefs. Response agencies will
initiate their agencies severe weather preparation checklist and their respective agency’s
Standard Operating Procedures (SOP) to prepare and respond to the severe weather threat.
Agencies will establish a Plan of Action identifying agency preparations securing vulnerable
critical facilities, response resources (equipment, vehicle, materials & supply inventory),
response team staffing, needs and resource shortfalls. Updated copies of this plan and checklist
will be provided to the GHS/OCD.
The GHS/OCD will coordinate the activation and manage the EOC before, during, and after the
tropical cyclone threat. Emergency shelters and mass care will also be considered and managed
in addition to all appropriate Functional Annexes as outlined in the Guam Emergency Response
Plan.
V. Organization and Assignment of Responsibilities
A. Organization
The EOC Director will coordinate all agency tasking and action items under the Unified
Command Structure organization as outlined in the National Incident Management System.

B. Assignment of Responsibility
The activities required to address all emergencies or disasters have been identified as either
primary or support functions. The assignment of Response Agencies functions has been
identified in the Functional Annex Section.
VI. Administration and Logistics
Upon activation of the Response Agencies, the Department of Administration (DOA) manages
and tracks all emergency and disaster related expenses. When COR 3 is announced the
Administration and Logistics function of the Unified Command System will begin preparation
for response and recovery operations. DOA will establish emergency accounts for all response
agencies to accommodate pre-event preparedness expenditures and activities up to deactivation
of the response effort following the emergency or disaster. The General Services Agency (GSA)
will provide the logistics to source, acquire and distribute all response related materials and
resources. Along with the GHS/OCD, GSA will receive, inventory and manage all response
related resources and request for materials by establishing areas to collect, stage and distribute all
request for response materials and resources.
VII. Plan Development and Maintenance
The Administrator of the Office of Civil (OCD) is responsible for the maintenance and revision
of this annex.
The GHS/OCD will review and exercise this Annex on an annual basis, or as needed. Updates
and revisions to the Annex will be made accordingly.
A pre-typhoon season exercise will be conducted sometime between April – June per year as a
part of Response Agency readiness activities.
VIII. Authorities and References
A. Authorities
This plan is issued under the authority of, and in accordance with the provision of Guam
Civil Defense Act of 1951, and supersedes the Territorial Emergency Plan of October 1978.
References governing the enactment and implementation of this are:
• The Organic Act of Guam, as amended and related statutes. Chapter 8A Guam-Title-48
U.S.C.A. 1422
• Public Law 93-288, Disaster Relief Act of 1974
• Guam Government Code 8501-8515, (Public Law 1-21)
• Guam Government Code 62020
• Executive Order of the Governor 91-09, dated March 25, 1991
• Guam Government Code 40400

B. References
The following publications/planning documents were utilized in formulating this Plan:

• The Federal Response Plan (9230.1 PL, FEMA)
• Guide for All-Hazard Emergency Operations Planning (SLG 101, FEMA)
IX. Appendices
See Functional Annexes A-O
X. Tabs
A. Severe Tropical Cyclone Checklist

B. Severe Tropical Cyclones-Agency Preparedness
C. Total Tropical Cyclone Occurrences (not included in SitMan)






D E P A R T ME NT OF D E F E NS E
C ONDIT IONS OF R E A DINE S S
Tropical cyclone Conditions of Readiness (COR) Definitions
 COR IV. This is the normal condition for Guam. Destructive winds of 50 knots or greater
are possible within 72 hours.
 COR III. Declared when destructive winds of 50 knots or greater are possible within 48
hours.
 COR II. Destructive winds of 50 knots or more are anticipated within 24 hours.
 COR I. Destructive winds of 50 knots or greater are anticipated within 12 hours or are
occurring.
Progression from COR I to COR IV
 COR I is declared when destructive winds (50 knots or greater) are anticipated within 12
hours or are occurring.
Key preparations:
− Make notifications;
− Release non-essential employees;
− Coordinate with Anderson Air Force Base (AAFB) and Civil Defense;
− Allow only emergency vehicles on streets;
− Lock base gates just prior to destructive winds; and
− Secure all personnel/facilities.
Key preparations for after the storm has passed and winds no longer destructive BUT
BEFORE COR IV ALL CLEAR IS DECLARED:
− Recall personnel essential for recovery procedures;
− Assess damage; and
− Remove immediate threat hazards from roads and facilities.
 COR IV "ALL CLEAR”: Immediate threat hazards removed, safe for non-essential
employees to return to work.
Key preparations:
− Ensure CC remains activated, until no longer necessary, for recovery efforts
(including support to Civil Defense);
− Establish Family Assistance Center (Chapel, bldg. C), as needed; and
− Implement recovery plans.

Cyclone Forecasts and Warnings

Initial Cyclone Formation Forecast and Warning:
 Naval Pacific Meteorology and Oceanography Center (NPMOC), Yokosuka, Japan

COMNAVMARIANAS Representative (Staff METOC Officer (SMO, Code N3WEA)) will
notify (phone call, followed by memorandum and e-mail).
 CDO will relay notification to Executive Officer (N02/XO) and Disaster Preparedness
Officer (N01P/DPO). COMNAVMARIANAS chain-of command will be notified through
XO (N02) and COS (N01/COS), appropriately.
 NPMOC .Yokosuka will maintain cyclone tracking and forecast information on their internet
web page. CDO and Operations Department (N3) will monitor cyclone formation status on
web site.
Cyclone-Alert and Setting of COR:

 SMO will notify CDO when destructive winds of 50 knots or greater are expected within 48
hours.
 CDO will notify COMNAVMARIANAS via DPO, XO and COS. DPO and SMO will
coordinate/schedule SMO (339-6141/6144) to provide regular or as needed heavy weather
briefs to COMNAVMARIANAS.
 Setting of appropriate COR will be conducted by COMNAVMARIANAS upon

recommendations by SMO and consultation with Andersen Air Force Base Command Center
(36th ABW and 13th AF, 366- 2981/9952), and Guam Civil Defense (CD, 475- 9600). COR
setting is normally completed during a Heavy Weather Brief in the COMNAVMARIANAS
Headquarters conference room which is attended by representatives of ACOS, tenants, Navy
commands on Guam, USCG, AAFB, and Civil Defense (CD). Setting of CORs may be
conducted via available communications between COMNAVMARIANAS and the Governor
of Guam. Heavy Weather Briefings are coordinated by the DPO and SMO, with assistance
from N1 to send out ALMILACTS message. Setting COR II should take into consideration
logistics and costs of work and school release (if recommended during work/school hours
since most offices and schools close at COR II), providing sufficient daylight preparation
hours and existing weather conditions. Setting COR I is usually based on the onset of
destructive winds. Returning back to COR IV depends on damage assessments and removal
of serious hazards completed first.

Source: http://www.aoml.noaa.gov
T R OP IC A L C Y C L ONE C L A S S IF IC A T IONS
 Tropical Depression. Sustained surface winds up to 33 knots are present within the tropical
cyclone. Depressions have a closed circulation.
 Tropical Storm. Sustained surface winds between 34-63 knots are present within the
tropical cyclone. The convection in tropical storms is usually more concentrated near the
center with outer rainfall organizing into distinct bands.
 Typhoon. Sustained surface winds between 64-129 knots are present within the tropical
cyclone. In the Atlantic, eastern and central Pacific oceans typhoons are called hurricanes.
Their severity is designated by category with “1” for weak cyclones to “5” for the most
severe cyclones.
 Super Typhoon. Sustained surface winds of 130 knots or greater are present within the
tropical cyclone. This is the equivalent of a strong Category 4 or 5 hurricane in the Atlantic
basin or a category 5 severe tropical cyclone in the Australian basin (see below for more
information on hurricane categories).
Saffir-Simpson Hurricane Scale
Tropical Cyclone Severity

Typical effects
Categories Winds
(indicative only)
64-82
Storm surge generally 4-5 feet above normal. No real damage to building structures.
Knots/
Category 1 Damage primarily to unanchored mobile homes, shrubbery, and trees. Some damage to
74-95 mph
poorly constructed signs. Also, some coastal road flooding and minor pier damage.
83-95 Storm surge generally 6-8 feet above normal. Some roofing material, door, and window
Knots/ damage of buildings. Considerable damage to shrubbery and trees with some trees
Category 2
96-110 mph blown down. Minor house damage. Considerable damage to mobile homes, poorly
constructed signs, and piers. Small craft in unprotected anchorages break moorings.
96-113
Storm surge generally 9-12 feet above normal. Some roof and structural damage to
Knots/
Category 3 small residences. Mobile homes and poorly constructed signs are destroyed. Large
111-130
trees blown down. Smaller coastal structures destroyed and larger structures damaged.
mph
Power failure likely.
114-135
Knots/ Storm surge generally 13-18 feet above normal. Significant roofing loss and structural
Category 4
131-155 damage. Shrubs, trees, and all signs are blown down. Complete destruction of mobile
mph homes. Dangerous airborne debris. Widespread power failure.
135 knots/ Storm surge generally greater than 18 feet above normal. Complete roof failure on
Category 5
155mph many residences and industrial buildings. Some complete building failures. Extremely
dangerous with widespread destruction.

Source: http://www.aoml.noaa.gov











Source: http://www.aoml.noaa.gov/
F A C T S HE E T : N A T IONA L I NC IDE NT MA NA G E ME NT S Y S T E M
(NIMS )
Release Date: 03/01/04
U. S. Department of Homeland Security Secretary Tom Ridge today announced approval of the
National Incident Management System (NIMS), the Nation’s first standardized management
approach that unifies Federal, state, and local lines of government for incident response.
NIMS makes America safer, from our Nation to our neighborhoods
NIMS establishes standardized incident management processes, protocols, and procedures that
all responders--Federal, state, tribal, and local--will use to coordinate and conduct response
actions. With responders using the same standardized procedures, they will all share a common
focus, and will be able to place full emphasis on incident management when a homeland security
incident occurs--whether terrorism or natural disaster. In addition, national preparedness and
readiness in responding to and recovering from an incident is enhanced since all of the Nation's
emergency teams and authorities are using a common language and set of procedures.
Advantages of NIMS
NIMS incorporates incident management best practices developed and proven by thousands of
responders and authorities across America. These practices, coupled with consistency and
national standardization, will now be carried forward throughout all incident management
processes: exercises, qualification and certification, communications interoperability, doctrinal
changes, training, and publications, public affairs, equipping, evaluating, and incident
management. All of these measures unify the response community as never before.
NIMS was created and vetted by representatives across America including
 Federal government;
 States;
 Territories;
 Cities, counties, and townships;
 Tribal officials; and
 First responders.
Key features of NIMS

 Incident Command System (ICS). NIMS establishes ICS as a standard incident
management organization with five functional areas--command, operations, planning,
logistics, and finance/administration--for management of all major incidents. To ensure
further coordination, and during incidents involving multiple jurisdictions or agencies, the
principle of unified command has been universally incorporated into NIMS. This unified

Source: http://www.aoml.noaa.gov/
command not only coordinates the efforts of many jurisdictions, but provides for and assures
joint decisions on objectives, strategies, plans, priorities, and public communications.
 Communications and Information Management. Standardized communications during
an incident are essential and NIMS prescribes interoperable communications systems for
both incident and information management. Responders and managers across all agencies
and jurisdictions must have a common operating picture for a more efficient and effective
incident response.
 Preparedness. Preparedness incorporates a range of measures, actions, and processes
accomplished before an incident happens. NIMS preparedness measures including planning,
training, exercises, qualification and certification, equipment acquisition and certification,
and publication management. All of these serve to ensure that pre-incident actions are
standardized and consistent with mutually-agreed doctrine. NIMS further places emphasis
on mitigation activities to enhance preparedness. Mitigation includes public education and
outreach, structural modifications to lessen the loss of life or destruction of property, code
enforcement in support of zoning rules, land management, and building codes, and flood
insurance and property buy-out for frequently flooded areas.
 Joint Information System (JIS). NIMS organizational measures enhance the public
communication effort. The Joint Information System provides the public with timely and
accurate incident information and unified public messages. This system employs Joint
Information Centers (JIC) and brings incident communicators together during an incident to
develop, coordinate, and deliver a unified message. This will ensure that Federal, state, and
local levels of government are releasing the same information during an incident.
 NIMS Integration Center (NIC). To ensure that NIMS remains an accurate and effective
management tool, the NIC will be established by the Secretary of Homeland Security to
assess proposed changes to NIMS, capture, and evaluate lessons learned, and employ best
practices. The NIC will provide strategic direction and oversight of the NIMS, supporting
both routine maintenance and continuous refinement of the system and its components over
the long term. The NIC will develop and facilitate national standards for NIMS education
and training, first responder communications and equipment, typing of resources,
qualification and credentialing of incident management and responder personnel, and
standardization of equipment maintenance and resources. The NIC will continue to use the
collaborative process of Federal, state, tribal, local, multi-discipline and private authorities to
assess prospective changes and assure continuity and accuracy.
Note: The revised NIMS document underwent a final national comment period from May 1-
May 30, 2008. The final revised document should be released during the summer of 2008.

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S IT UA T ION MA NUA L

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SitMan: Preface i Pakyo’s Wrath

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SitMan: Preface ii Pakyo’s Wrath

H A NDL ING I NS T R UC T IONS

Name: Fred Wehrenberg

SitMan: Handling Instructions iii Pakyo’s Wrath

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SitMan: Handling Instructions iv Pakyo’s Wrath

HANDLING INSTRUCTIONS ...............................................................................................................III

SECTION 1: EXERCISE OVERVIEW ............................................................................................... 1-1

SECTION 2: SCENARIO ................................................................................................................ 2-1

SECTION 3: RECORDS AND FORMS .............................................................................................. 3-1

SECTION 4: TABLETOP EXERCISE BRIEFINGS ............................................................................... 4-1

SECTION 5: BACKGROUND INFORMATION .................................................................................... 5-1

SitMan: Contents v Pakyo’s Wrath

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SitMan: Contents vi Pakyo’s Wrath

Purpose and Scope

SitMan: Overview 1-1 Pakyo’s Wrath

SitMan: Overview 1-2 Pakyo’s Wrath

Overarching Exercise Objectives:

SitMan: Overview 1-3 Pakyo’s Wrath

O.3. Mutual Aid Agreements: Review inter-jurisdictional mutual support compacts or

SitMan: Overview 1-4 Pakyo’s Wrath

SitMan: Overview 1-5 Pakyo’s Wrath

Exercise Ground Rules

Game Periods and Special Topic Briefings

Special Topic Briefings include:

SitMan: Overview 1-6 Pakyo’s Wrath

 Sections of the Guam Catastrophic All-Hazards CONOP;

Issues Hot Wash

SitMan: Overview 1-7 Pakyo’s Wrath

Assumptions and Artificialities

SitMan: Overview 1-8 Pakyo’s Wrath

SitMan: Scenario 2-1 Pakyo’s Wrath

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SitMan: Scenario 2-2 Pakyo’s Wrath

SitMan: Records and Forms 3-1 Pakyo’s Wrath

What additional concepts or procedures do I need clarified?

What changes or additions to existing plans or procedures are necessary to support or

SitMan: Records and Forms 3-2 Pakyo’s Wrath

What additional briefings or formal training does my agency need?

SitMan: Records and Forms 3-3 Pakyo’s Wrath

SitMan: Records and Forms 3-4 Pakyo’s Wrath

Participant Name: ___________________________ Title: ___________________________

Agency: ________________________ Role: __Player __Observer __Evaluator

Part I – Recommendations and Action Steps

SitMan: Records and Forms 3-5 Pakyo’s Wrath

Part II – Exercise Design and Conduct

1. What is your assessment of the exercise design and conduct?

Rating of Satisfaction with Exercise

a. The exercise was well structured and organized. 1 2 3 4 5

b. The exercise scenario was plausible and realistic. 1 2 3 4 5

c. The documentation used during the exercise was a

d. Participation in the exercise was appropriate for

Participant Name: _ Title: _

Agency: ______________________ Role: Player Observer Evaluator