New York State Office of Cyber Security
Geographic Information Systems Clearinghouse
“Preparing for an Uncertain Future”
A Workshop on the Use of GIS for
Homeland Security and Emergency Response
The following is an outline of the exercise used and a report on the results obtained from a facilitated audience participation session on the use of GIS for Homeland Security and Emergency Response. It was held at the 20 th Annual New York State GIS Conference on October 19, 2004. Approximately 75 people participated in the session. The session was designed as a “war gaming” exercise with close interaction on each issue from the audience and appropriate commentary from the expert panel when required. It was developed by Bruce Oswald with assistance from Bill Johnson, the co-facilitator, and the panelists and is based on similar work developed for the Office of Cyber Security and Critical Infrastructure Coordination for Cyber Security.
The purpose of this session was to familiarize the larger GIS community with how GIS could be used to assist responders to homeland security or emergency response incidents in their communities. It was also conducted to provide New York State with an opportunity to learn how GIS professionals responding to incidents in their communities would approach the use of GIS for homeland security and emergency response. Finally, it was designed to give the participants in the audience an understanding of the GIS capabilities (data, technology and human resources) that New York State could provide during an emergency.
Participants
Facilitators: Bruce Oswald, Assistant Director & CIO, NYS Office of Cyber Security and Critical Infrastructure Coordination (NYS CSCIC); Bill Johnson, Manager of GIS and Critical Infrastructure Coordination, NYS CSCIC
Panelists: Jim McConnell, GIS Manager, NYC Office of Emergency Management; Tim Ruhren, NYS GIS Homeland Security & Emergency Response Coordinator, NYS CSCIC; Dan O’Brien – Program Manager, NYS Office of Emergency Management.
10:30-10:40 AM Welcome/Overview of Exercise (Bruce Oswald)
Introductions: Bill Johnson, Bruce Oswald, Panel – Dan O’Brien NYS Office of Emergency Management; Tim Ruhren; Jim McConnell (NYC OEM).
Key points of exercise:
- Use of war gaming tools to explore GIS issues for response to Homeland Security/Emergency response incidents.
- Similar to military war gaming and emergency management tabletop exercises.
- Exercise asks participants to walk through a fictitious scenario as if you were reacting to the incident.
- Exercise is offered to provide insight into the considerations that go into responding to an incident and for the audience to learn what is available, get ideas of what others are doing, get ideas of how to obtain data and distribute information, and, lastly to have fun.
10:40-10:50 AM Presentation on the NYS GIS Capabilities for Homeland Security/Emergency Response (designed to quickly bring the audience up to speed on NYS capabilities) (Bill Johnson)
- GIS Improvements to the NYS Emergency Management Office
- Facility, data organization, map templates, call-up lists, operational methodologies
- Mobile GIS Capabilities
- Digital cameras in helicopters
- Emergency imagery capabilities
- Developing a “mobile” GIS capability (“Away” Team & GIS Rover)
- Plume Modeling
- Data Gathering/Improvement
- Critical Infrastructure & Asset Mgt. Application
- Training Exercises
- Internal Exercises
- Joint GIS Training Exercises w/State Agencies, County and Municipal Governments
- Coordinating Local, County, State & Federal GIS Efforts
- ID GIS responders to emergencies
- Provide alternate GIS data storage site
- Develop methodologies to share products ( EROS Data Center )
10:50-11:45 AM Fictitious Scenario Introduction (Bruce Oswald)
- Instructions for participants
- Although there may be an inclination to “solve” the technical problem, your goal here is to discuss the processes you might go through to respond to the problem. Technical details are therefore deliberately vague and detailed technical discussions are not desired.
- The scenario is not meant to be a realistic portrayal of any incident; it is presented only for the purposes of this discussion. You should not walk out thinking this is a prediction or indicative of any real-world state entity vulnerabilities. It is a fictitious scenario.
- We are going to ask you a series of questions regarding the scenario, and ask you to respond as if you have been asked to provide GIS support as part of a local GIS support team. We will try to capture your answers and comments as we proceed. The last part of each discussion will be comments from our panel. They will add their perspective to questions from time to time.
-- Fictitious Scenario Used in Workshop --
The date is October 19, 2004. It is two weeks prior to the national election. Ramadan is being observed in the Muslim community from October 15 th to November 14 th. The Department of Homeland Security (DHS) has raised the Homeland Security Threat Advisory Level to “ Orange” because of credible information that terrorists wish to disrupt or alter the outcome of the election to achieve results similar to what occurred in Spain. Transportation systems, financial institutions and polling places are seen as potential targets.
It is 11 am and a large explosion is heard in your community coming from an industrial section. You are asked to provide GIS support for emergency responders and are asked to report to the county/municipal emergency operations center. Upon arriving, you are briefed on the latest information. The briefing indicates that there was a major explosion on a train with a significant number of chemical tanker cars. People have been seen fleeing from the train and an unknown number have been killed.
Questions (Bruce Oswald & Bill Johnson alternated asking questions. Depending on the question, one or more of the panel members were asked at the end to explain what they would recommend be done.)
1) You are first asked to depict the location of the explosion as well as the extent of the damage.
How would you do this? Reports are given to you indicated that the explosion has leveled an area of several hundred yards and a number of structures are in various forms of collapse.
Responses from audience:
- Get information from witnesses/first responders on location of blast and extent of damage zone.
- Put a point on a map that is a best guess. Put a buffer around the point. Refine the zone as a second effort. Get the information out as quickly as possible.
- Determine if you can get a digital photo taken from a helicopter or a high point to better define zone and extent of damage.
- Get information from Railroad Stations and Dispatches.
- Other things to start to think about:
- How many people have been hurt? Where are they being taken?
- What was on the train? Railroads have their own police, should be able to provide information.
- What water (wells, water intakes, water bodies) is at and near the site?
- Do plume modeling to assist in assessing the impact of the incident on the population.
- Get samples to determine what has happened. (Air, Water, Soil)
- What resources are available – Hospitals, Schools, Police, etc…
Follow up responses from panel:
- First responders can help define the perimeter.
- Remember, before you get involved in plumes, etc. that, above all, you need to rapidly get the incident location map out!!
- Establish a good working relationship with your superiors at the EOC. If time permits, take time to learn the organization.
- Determine what questions the responders have that GIS can assist in providing answers to.
- Explain clearly and succinctly with your EOC superiors what GIS capabilities you can bring to assist in the response efforts. Remember, that you can not be successful if your superiors are unable to recognize that your data is worthwhile.
2) You have been asked to develop a map for search and rescue operations by the emergency operations folks. How would you go about doing it? You have also been asked to develop a map for the police who are hunting for possible terrorists. How do you coordinate that with the search and rescue map?
Responses from audience:
- Initially, there were mixed feelings over whether there should be one map or two.
- There was some discussion on whether the same grid was appropriate for both maps.
- It was agreed that appropriately sized grids should be on both maps.
- The audience agreed that the map used for hunting for terrorists should cover a larger area than the search and rescue map.
- It was suggested that the search and rescue map should have parcels, land use/land cover, hospitals, schools, and where the population was at the time of the explosion. A follow up point was that, in order to be effective, the maps should not be overly complicated. In addition, it was pointed out that time to produce the map was more important than too many details being provided.
- The audience also noted that the map for the police should have an established perimeter perhaps using a time distance calculation. They also suggested that it contain a road network showing egress routes and major thoroughfares plus road blocks, bus and train stations and heliport locations.
- Other important points:
- The audience suggested that parcel or data on businesses and other major facilities might be used to assist police in determining potential places for hiding.
- It was pointed out that the location of the incident should be on all maps.
- It was also noted that, if the location of the incident is not accurate, it should be clearly indicated on the map.
- An important point was made was that all maps should be date and time stamped.
Follow up responses from panel:
- The panel agreed that different maps should be used for the different purposes. However, the panel indicated that, because search and rescue people are going into areas where there are possible terrorists, their activities should be closely coordinated with police for protection.
- The panel suggested that the search grids used for both maps should not be based on boxes, but on landmarks to make it easier for the searchers to identify with during the actual searches.
- The panel suggested that the maps should consist of the use of an image of the site as a base layer with the limits of the searches and the grids identified over the image would make it easier for responders and police to use.
- The panel endorsed the suggestion that every map produced be date and time stamped.
3) What is the number of people in this area? What is the working population? What is the vulnerable population? Vulnerable populations have been defined by those in schools, hospitals, nursing homes, adult care facilities, mental health facilities, jails, etc. You’ve asked to develop a list including facilities within 3 miles of the initial explosion with their addresses and contact information. How would you do this?
Responses from audience:
- The audience suggested the use of Census data. It was noted that census data would only provide data on residences and not depict the day time population in the area. The audience then suggested the use of economic development or data from their planning or real property offices.
- It was also suggested that the local fire department may be a source for some occupancy numbers.
Follow up responses from panel:
- The panel indicated that the State’s Critical Information Application had data on the businesses with more than 5 employees across the state which could be used to assist in approximating the day time population of an area. It was also noted that this application could easily provide information on vulnerable populations as well.
- Other suggestions included the addition of data on schools, jails, mental health facilities, hospitals, government offices, etc. to assist in approximating the day time population of an area.
- The panel used the opportunity to point out that GIS professionals needed to know what data they had and the attributes included in it to approximate answers to questions like this “on the fly.”
4) You have also been asked to provide a map of recommended sites that might be used for evacuations. How would you locate these?
Responses from audience:
- The audience suggested identifying hospitals and including the kind of treatment that was available at each hospital (i.e. burn unit).
- They also pointed out that schools, Red Cross shelters, and large government facilities (armories) should be identified as potential evacuation sites. They suggested that things like heliports, pedestrian walkways, major roads, bridges, parks and other open spaces should be taken into consideration in determining the best facilities in proximity to the incident site. Lastly, they suggested that neighboring areas whose facilities could be used for overflow (should it be required) be included in any analysis.
- It was reported that the NYS Department of Health logs people going into hospitals. The audience asked if this data could be used to assist in directing people needing medical attention to less crowded hospitals.
- The audience also suggested that maps be updated regularly to depict the status of evacuations centers including which are actually activated, additional capacity, etc.
Follow up responses from panel:
- The panel suggested that private facilities also be considered for evacuation centers as public sites are not always available.
- They indicated that the location of potential evacuation sites should consider driving time from the incident as well as the need for access from outside the area as well as parking for family and friends wishing to meet with impacted citizens.
- They also pointed out that there might be the need for locating decontamination facilities.
- Finally, they pointed out that shelters and reception centers do not serve the same function.
5) Power has gone out in a large area. Rumors are that a large substation was impacted by the explosion and triggered the failure of another. How would you find folks on respirators and other emergency equipment? Emergency responders are looking emergency generators. What are your suggestions? How would you find out the extent of the power outage?
Responses from audience:
- The audience indicated that the best sources of this data were the power company and the E911 dispatch which should know where people live with special needs.
- It was noted that New York State has a dataset on State-owned emergency generators that would be in the closest proximity to the event site.
- The audience noted that many times police or local officials could obtain generators from local retail stores.
- A participant in the audience also noted that adequate fuel supplies would need to be identified as well.
The Panel was not asked to respond to this question.
6) State GIS staff have offered to share workload with the local GIS staff. They need to obtain a map of the explosion location and impacted area. How would you send it to them? The file isn’t making it to Albany. Ideas?
Responses from audience:
- The audience suggested moving a file to an FTP site for downloading.
- Another answer suggested by the audience was to simply describe the location of the event via a phone call.
- The audience indicated that other options included: trying to send and receive the data from alternate locations, delivery of the data by vehicle or simply watching CNN.
Follow up responses from panel:
- The panel questioned the ability of the State to deliver immediate GIS help for the incident, but pointed out the potential for significant assistance if the incident were to last multiple hours. It also reminded the audience of the varied datasets that had been collected for homeland security/emergency response. It was suggested that requests for assistance be sent through the NYS Emergency Management Office.
- Other suggestions by the panel included using e-mail and changing the extension on the “zip” file to “doc” or using the EROS Data Site that New York State has developed a working relationship for emergency response.
NEWS FLASH – A new report has just come in that a vehicle is on fire and is blocking one of the main evacuation routes. The police suspect terrorists have caused this. How would you handle rerouting information?
Responses from audience:
- While various standard “technical” solutions were suggested for developing a map to reroute traffic around this area, the best suggestion by the audience to resolve this problem was enlist the assistance of the Highway Department by bringing a snowplow to ‘push’ the vehicle out of traffic.
The Panel was not asked to respond to this question.
7) You’re in a major suburban commuting route. You’re asked to work with state and local police to develop a map depicting the rerouting of the traffic flow and post it to the county/municipal website and to the local media.
Responses from audience:
- The audience suggested that this information needed to be provided to: local and State police, E911 dispatchers, Radio/TV and websites, where available.
Follow up responses from panel:
- The panel noted that all suggestions for routing potential rerouting of traffic should be closely coordinated with the involved police agencies.
- The panel also suggested that local radio and TV stations would be provide the quickest and most effective means to get information out to the community on any traffic rerouting that was required.
8) Handheld data collection devices with GPS units have been provided. You’ve been asked to come up with a potential method to utilize them for building inspections by the local inspectors and professional engineers that have volunteered to serve the community. What are your ideas?
Responses from audience:
- The audience had a number of suggestions to insure success with the handheld devices. These included: bringing everyone who was given a device together and quickly training them before sending them out; developing a training sheet that was tested by a new user and could be referred to for guidance by users in the field; making sure that all of the GPS units are set up the same; having pre-establish pick lists and data dictionaries on the devices; and insuring that users are sent out with extra batteries.
Follow up responses from panel:
- The panel questioned whether GPS points were really needed. It was noted that in urban areas they usually are not as good as building name or address information for non-technical responders.
- The panel also was concerned that the units would only provide timely information if they were set up and responders trained in their usage prior to an event. Otherwise, the panel felt that a much simpler paper map approach might better meet the responders’ immediate needs.
11:45 – 12:00 Wrap Up Discussion; Hand out “Best Practices”
Closing points:
- Every exercise you participate in or activation for a storm is practice for the “real thing.”
- There are procedures and resources that all GIS responders need to know and practice.
- Despite tendencies to “go it alone,” outside help is available and should be considered.
GIS Best Practices for
Homeland Security/ Emergency Response
- Establish working relationships with the emergency response community.
- Learn what questions the emergency responders have and teach them what you can realistically provide.
- Organize equipment.
- Organize data.
- Set up map templates.
- Organize potential GIS professionals – obtain information on phone, cell, e-mail addresses.
- Determine alternate ways to get other data in an emergency (existing data from state, counties or neighboring communities, emergency imagery).
- Determine when it’s most effective to ask for GIS assistance – sharing product delivery and data development with GIS staff in surrounding communities or counties or at the State Emergency Management Office. Do you need GIS staff via the NYS GIS Away Team?
- Do scenario training – practice, practice, practice.
- Determine the best products to deliver to the responders (i.e. digital images, large printed maps, 8 ½ “x 11” packs, web sites, etc.).
- Work on speed of delivery – practice, practice, practice.