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EXERCISE TRILLIUM GUARDIAN 2010
GOC CONFIRMATION REPORT
EXERCISE NATIONAL OBJECTIVES
1. As a reminder of the context within which Exercise Trillium Guard was conducted the national
objectives for this important pre-operation training event are provided:
a. Integration of security, protection and safety measures necessary to support the G8-G20
Summit.
b. Within an integrated all-hazards approach and whole-of-government response framework, the
exercise program was to provide all participating organizations with the ability to become
familiar with, practice, test and confirm operational capabilities and Management and
Coordination arrangements for the four interdependent emergency management based
functions:
i. Prevention and Mitigation
eliminate or reduce the impacts and risks;
mitigate the impact of security and safety related incidents;
ii. Preparedness. Ready to respond and manage consequences;
iii. Response. Respond during or immediately following security and safety related
incidents; and
iv. Recovery. Restore or repair conditions to an acceptable level.
2. Exercise Trillium Guardian was a "Tier 1" exercise and the second of two national level exercises
intended to assist organizations to achieve the required level of readiness to deliver safe and secure G8
and G20 Summits.
AIM
3. The aim of Exercise Trillium Guardian is to confirm a functional integrated command and
coordination structure with effective information and intelligence sharing in support of the Canadian
national security and emergency management framework for the Summits.
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GOC CONFIRMATION REPORT
6. The TGconfirmation effort was focused by the four overarching confirmation themes:
a. Command and control (C2),
b. Planning,
c. Coordination and
d. Communications (including public affairs).
7. In the preparations for TG, the team analyzed the planned scenario events against this thematic
framework in order to determine those that could be expected to be "high payoff" for our purposes.
The result was that while all events would be followed, particular attention would be paid to the Barn
Exploitation and food contamination scenarios, the Toronto protests, the Westin evacuation, the
highway blockages and the air incursions.
PUBLIC SAFETY CANADA - GOC CONFIRMATION
8. As the Exercise TG Confirmation Team representative inside Public Safety Canada's GOC my.
primary mandate was the same as the entire Team, to focus on the seams in terms of Command and
control, planning, coordination, information flow, and communications. In addition, I elected to add the
aspect of Information Management and Situational Awareness given the GOe's mandate.
9. In order to maximize the training opportunity presented by Exercise TG, I was asked, where it
made sense to do so, to provide feedback and observations on issues internal to the GOe. I focused my
observations on the following functional areas:
a. GOC Command and control;
b. Integration of the planning function;
c. GOC operations;
d. GOe's enabling tools; and
e. Information Management & Situational Awareness.
SPECIAL CONSIDERATIONS UNIQUE TO EXERCISE TG
10. Many of the organizations and individuals involved in Exercise TG where fresh from having just
completed a major operation with the recent conclusion of the Vancouver 2010 Olympics and'-
Paralympics Winter Games. It became very clear that a significant number of Departments and Agencies
under estimated the political dimension of a short duration, high visibility event such as the upcoming
G8/G20 Summit. This was not the case for the GOe. The political dimension introduced a pull for
information to the top not present to the same extent during The Vancouver Winter Games despite the
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12. Planning Function. The planning function at the National level was not exercised during Exercise
TG. Most planning activities were isolated to SMO and the Security Forces. The Thallium/terrorism
threat scenario could have triggered a planning cycle at the National Level to manage the deployment of
mitigation measures and develop a consequence management plan in cooperation with SMO and
Security Forces in the event the threat did materialize. However, the ability to trigger such a planning
cycle,
a. Observations. Collaborative planning and exchanges of plans between
organizations are the key areas requiring better definition and cooperation in
advance of the Summit.
i. Collaborative Planning. In general the roles and responsibilities regarding pre-event
planning are well understood. However the same degree of clarity did not seem to
apply regarding the conduct of emergency planning during an actual event. The
roles and responsibilities for planning appeared to be especially blurred in the area
of consequence management and planning related to immediate or emerging
potential threat/risk for the purpose of mitigation or response. No planning cycles
where initiated during Exercise TG. This may be due to the fact that required
planning thresholds were never met due to lack of information. However,
discussions surrounding the requirement to plan in support of ADM EMC and DM
SAChighlighted the need for a better collaborative planning environment to be
created between agencies. Consideration should be given to the activation of an
event specific planning group involving representation from all required
Government departments. Using the Liaison Officers present inside the GOC may
not provide the level of organizational knowledge and expertise necessary to
develop mitigation, consequence management or response options in support of
the Government. In addition, conflict could arise with the Liaison Officers primary
role. Presently planning appeared to occur in isolation, back in respective
Departments and Agencies without the benefit of a centrally managed and
coordinated planning effort. The GOC Plans & Logisitcs Group appears to be ideally
suited to lead, manage and coordinate this whole of Government Planning effort
during an event.
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ii.
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GOC CONFIRMATION REPORT
1
b. Information Silos The graphic below illustrate the current flollJ of informatio:r
from various Federal Departments and Agencies and the GOC In general the
information flows in silos With some lateral sharing bet\\'een agencies has required.
Some of that Information flows thought the GOC but the more senSitive information
appears to flow upward to the ADM level or equivalent at each parent organIZation
byoasslng the GOC entirely Critical information is not laterally shared until groups such
as DM SAC and ADM EMC meet.
( Need for Information Sharing. What is clearly miSSing is a forum, most l ikely at
the DG Level. where all relevant ,nformation is shared, classified or not. In order to
generate the situational awareness and assessment of the impact of the threat required
to support the deCISion making process of ADM EMC and DM SAC The Olembershlp to
thIS group must be flexible and tailor made to the nature of the event. A similar group
already exists to deal with Cyber event and could be adopted for other events and
emergencies involving National Security. Their role would be to:
I. Share all pertinent information regardless of the senSitivity or claSSification.
II. Establish Situational Awareness for ADM EMC and DM SAC
Iii. Assess the risk of releasing some claSSified ane sensitive informJ~ion in order to
inform the planning and decision making process to generate J timely responsc.
v Asscss impact of threat and risks to a specific operation.
v. Gui de tre planning cycle.
v, Prepare advice for ADM EMC and D M SAC
Vii Approved a sanitized situation report for release to wider audience for
SituationJI awareness.
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EXERCISE TRILLIUM GUARDIAN 2010
GOC CONFIRMATION REPORT
Risk Based Information Sharing. The difficulty experience during
Exercise TG surrounding the release and sharing of sensitive but critical
information does not appear to be unique to Exercise TG but have occurred at various
levels during recent real operations and events. This situation highlights the
requirement to establish a clear mechanism to share classified and sensitive information
in a timely manner in order to inform the decision-making process, the situational
awareness process, the planning process and the threat-risk assessment process. The
flow of less sensitive information into the GOCseems to work well
when considering the reiease
and sharing of National Security, Law Enforcement or otherwise sensitive
information:
i. Protecting the chain of evidence
ii. Protecting the source of the information
iii. Operationai Security
Iv. Operational requirements (need to plan and execute a timely response)
CONFIRMATION TEAM OBSERVATIONS -INTERNAL TO GOC
14. Although the provisions of observations regarding the internal procedures and processes of the
GOCwere not the primary focus of the Confirmation Team, it was felt that providing such was feedback
was desired and welcome. The observations presented below are a result of discussions with GOC
members, Liaison Officers and Management as well as my own.
15. Command and Control. During discussions with both GOC Staff and Liaison Officers, the issue
of lack of clarity on the Command and Control inside the GOCwas raised on several occasions. People
felt that they were not sure who was in charge during a given shift. The Command and Control
arrangements might be clear to those who have been around the GOClong enough but this is not the
case for others. Some are under the impressions the SARAhas the lead while others believe the Director
of the GOCis the lead. In order to clarify the C2 arrangements inside the GOC,I offer the following
comments:
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GOC CONFIRMATION REPORT
a. Clearly Display inside the GOC who is the Senior Manager on duty along with the roster
for each shift.
b. Include, if not already done, in the GOCtraining for Liaison Officers and new GOCStaff asection on the GOCCommand and Control.
c. Other option would be to keep both DGand DOGout of the minute by minute oversight
of the GOCOperations to act as the Bridge between PSCADM's Office, ADM EMC and
GOe. This would allow them to provide guidance and direction on strategic information
requirements, SA products and decision support products (Info Briefs, Decision Briefs,
Threat/Risk Assessments).
d. The leadership for each shift would come from the four directors. This approach may
be problematic because two of the directors (Cyber and Pians/Logisitcs) have very
specific duties and depending on the event being dealt with may have to focus on
coordinating their group's activity.
16. Planning function. This may have been exercise artificiality but the role of the Planning
Group did not seem to be well understood within the GOCand amongst the Liaison Officers. The graphic
below articulates my current understanding of the roles and responsibilities of the various elements of
the GOCincluding the relationship between them. In summary:
a. GOC's Watch Team(s) main role is to monitor and warning as well as to manage the
flow of information in and out of the GOe.
b. SARA main role is the assess information and to produce Situational Awareness and
Intelligence Products. Their role is to answer the SOWHAT and assessthe impact of
events and situations. Their products are essential to inform and support both the
planning process and decision-making process.
c. Plans & Logistics Group is responsible for emergency, contingency and long terms
planning. Their role is to provide response options based on the SA, impact assessments
and information provided by GOC/SARA.While SARAputs together the Info Brief, the
Plans & Logistics Group should be responsible to produce the Decision Brief and any
documents required to articulate a whole of Government Response. Comments. The
Plans & Logisicts Group must be better linked in with SARAduring the Threat, Situation
and Impact assessment stage in order to initiate a planning cycle early. Criteria and
triggers to initiate an emergency or contingency planning cycle must be clearly
articulate and the required planning guidance must be provided by the GOe Senior
Leadership.
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GOC CONFIRMATION REPORT
i,e'
ADGO
Corporate/Support
ASSESSMENTS/SA
SARA
Figure 2 - GOC Functional Model
Other Government Departmen:;'.{l""and Agencies
Other Canadia.'H
Internatio~";"" ,,.,,,
OPERATIONS &
COORDINATION
GoeMonitoring & Warning-- .0>";'
,~Cj_";.:);'"
Notification
CCIRC
(Self contained capability)
(VBER Monitoring & Warning
RESPONSE
PLANNING & LOGISTICS
GROUP
Conduct Event Specific
Advanced Planning
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GOC CONFIRMATION REPORT
e. Integrated Incident Management System System (log, event templates, geo productsl.
Currently the GOC uses a version of the ETeam Incident Management Software as well as aseparate application called the Canadian Common Operating Picture. ETeam is mainly used
as a log for day to day or event specific. The accessto the Canadian Common Operating
Picture is limited and only a handful of people are training to use it. The GOCshould
investigate Fully Integrated Incident Management Applications capable of integrating the
following tasks:
i. Communications lOG;
ii. Incident/event response templates and checklists;
iii. Dashboard capability to track status of tasks;
iv. Geomatics products;
v. Capability to maintain a Common Operating Picture;
vi. Links to Standard Operating Procedures;
vii. Capacity to rapidly package the information to create an event SA page; and
viii. Handover brief function to faCilitate shift changes.
f, Requirement for Regular Staff Updates Briefs. During Exercise TG, I noticed that the only
formal briefings for the GOCStaff and Liaison Officers occurred at shift change. This may be
sufficient during a slow pace operation or event but may not be sufficient to maintain GOC
Staff SA during a more complex and dynamic event. The GOCshould consider implementing
a GOCStaff Update Brief to take place either at a set interval or when something significant
has occurred requiring the synchronization of the Team. The proposed standard template is
as follows:
i. Situation update to focus on incidents closed or solved since last brief;
ii. Current situation update to focus on key events and activities actively monitored by
the GOCto include latest development of interest;
iii. Update on status of key GOC actions taken or on going (Assessment being produced
by SARA,Decision Brief for ADM EMC, RFIstatus);
iv. Assign new tasks as required or adjust previously assigned tasks;
v. Confirm timelines for next deliverables (SITUATION REPORT,DECISIONBRIEF,INFO
BRIEFetc);
vi. Round table; and
vii. Confirm timing for next update.
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GOC CONFIRMATION REPORT
18. GOCOperations. Overall the processes and procedures witnessed during Exercise TG worked
well and seemed well understood by most. The following observations are provided in areas where
some improvements could be made to enhance existing capabilities and overall effectiveness of the
GOC;
a. Clear Battle Rhythm. This point was mentioned under enhancements to internal SA but
clearly displaying the GOC's Battle Rhythm for all to see would enhance awareness of
key timings essential for the smooth operation of the GOC;
b. More structure in shift change brief. All the shift change or morning brief I witnessed
focused heavily on reviewing the RFIMatrix or did not appear to follow a set agenda. I
suggest that a structured approach to shift change briefs be implemented in order to
make sure all pertinent information is covered in a logical manner to facilitate a
smooth transition from one team to the other. The structure of the shift handover brief
would be very similar to the GOCStaff Update Brief:
Situation update to focus the past 8 or 12 hours depending on shift duration;
Update on status of key GOCactions taken or on going to complete a smooth
handover of actions in progress or to be initiated by the incoming team;
Confirm timelines for next deliverables (SITUATION REPORT.DECISIONBRIEF.INFO
BRIEFetc);
Confirm new RFlsor request for specific products;
Confirm key events to occur during the next shift; and
Break off to individual work station to complete individual handover.
Formal SOPsto bring in ODG lO. In at least one occasion, I witnessed a liaison Officer
from Transport Canada who had no idea of her role inside the GOc. The responsibility to
prepare the liaison Officer is shared between the individual own Department and the
GOc. I am assuming that clear guidance has been communicated to all Departments and
Agencies required to provide a liaison Officer to the GOC. I will limit my observations to
the reception and integration of the liaison Officers in the GOc. The integration of
liaison Officers into the GOCshould go through four stages:
i.
li.
iii.
iv.
v.
vi.
c.
i. Selection and training by own Department and Agency
ii. Training and GOCfamiliarization training provided by GOCon a cyclical basisiii. Administrative Reception upon activation (Should cover access control, computer
password, assignment of a work stations, shift schedule, phone number and feeding
arrangements.
iv. Operational Reception once the GOCadministrative reception is completed, the liaison
Officer is handed over to a pre-designated member of SARAwho will than brief the
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Liaison Officer on GOCOperations such as Battle Rhythm, LO responsibilities,
contribution to deliverable, Situation update, shift hand over procedures before allowing
them to sit at a desk. Preferably this should coincide with a regular shift handover but
during activation the process may have to be repeated with each Liaison Officer
depending on their level of familiarity and previous exposures to GOC Operations
19. .overall Exercise TG was very successful. The observations and comments contained in this
report are aimed at improving already mature and well established process and procedures. Going
forward, the most pressing issue to address, because of its potential negative impact on the
effectiveness and timeliness of a whole of government response,
Solving this issue is critical for the GOe's
ability to effectively carry out its mandate, on behalf of the Government of Canada, to generate and
maintain situational awareness in support of both planning and decision-making required for the timely
deployment of risk mitigation measures and implementation of response plans.
Prepared by
(original signed by)
Richard Moreau
Moreau Emergency Management Consulting Corp
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