EXERCISE REPORT - APOLLO
Western Australian Functional Preparedness Exercise
Bunbury 16 – 20 May 2016
Prepared by:
Exercise APOLLO Evaluation Lead
Chris Lavin, Department of Agriculture and Fisheries, Queensland
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Contents
Introduction .................................................................................................................. 2
Objectives ..................................................................................................................... 4
Scope…. ....................................................................................................................... 5
Participating Organisations ........................................................................................... 6
Exercise APOLLO Scenario .......................................................................................... 6
Observations ........................................................................................................ 7
Recommendations ............................................................................................... 7
Exercise Management .................................................................................................. 7
Observations .......................................................................................................10
Recommendations ..............................................................................................11
APOLLO Objective 1 - Practise Emergency Repsonse Roles and Functions .............10
Observations .......................................................................................................14
Recommendations ..............................................................................................15
APOLLO Objective 2 - Evaluate MAX in a Simulated Response .................................15
Observations .......................................................................................................17
Recommendations ..............................................................................................18
APOLLO Objective 3 - Test & Evaluate Large Scale Livestock Disposal Plan ............18
Observations .......................................................................................................20
Recommedations ................................................................................................21
APOLLO Objective 4 - Enhanced External Stakeholder Awareness ............................21
Observations .......................................................................................................23
Recommendations ..............................................................................................23
Conclusion ...................................................................................................................23
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Introduction
This exercise report outlines observations and recommendations with respect to the
effectiveness of activities undertaken as part of Exercise APOLLO, including general
observations and comments with respect to planning and management.
The aim of Exercise APOLLO was ‘to assess DAFWA’s preparedness for a response during
a simulated level 31 biosecurity incident’.
Overall the planning and execution of Exercise APOLLO enabled DAFWA to meet the aim
and objectives. Notably, Exercise APOLLO exceeded expectations and has been recognised
as a success nationally. Feedback from participants and observers indicate that Exercise
APOLLO was well planned, well executed, credible and realistic.
The majority of the recommendations support or reflect known and previously identified
capability gaps. APOLLO provided an opportunity to practise, evaluate and validate a
number of current programs, in addition to assisting with the prioritisation of wider ‘whole of
department’ emergency response initiatives going forward.
Caption: Exercise APOLLO SCC Operations 17 May 2016
Exercise APOLLO observations and recommendations will be the subject of further analysis
and assessment. The Exercise APOLLO Evaluation Report will be finalised by the end of
2016 and will collate detailed observations and recommendations identified during the
exercise and importantly, an extensive range of lessons and recommendations observed
and/or identified during the planning, lead in activities and training prior.
This approach will assist DAFWA to prioritise continued emergency response capacity and
preparedness initiatives and investment. Investment priorities should be based on a
1 Acknowledge State Level 3 WA State incident level management classification aligns to AUSVETPLAN Level 4
Incident considerations for the purposes of Exercise APOLLO.
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combination of lessons learnt from Exercise APOLLO and known capability gaps identified by
DAFWAs functional branches prior to, or during the exercise planning or preparation phases.
“Exercise APOLLO was very effective in assessing the prescribed objectives of assessing our response
training, systems and disposal policies, as well as providing an excellent opportunity to work with other
agencies and the RRT. It highlighted a number of challenges DAFWA would face in a large-scale
biosecurity emergency and can be used to give direction to further prioritisation of resources”.
Mia Carbon, Western Australian Chief Veterinary Officer
Caption: Introduction of MAX – DAFWA IS Emergency Response Platform
“Well planned and organised activity providing a great opportunity for DAFWA staff, industry and other
government representatives to practice and enhance their emergency preparedness skills.”
External Representative
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Objectives of Exercise APOLLO
Exercise APOLLO had a number of objectives:
Provide participating DAFWA staff with the opportunity to practise emergency
response roles and functions and be assessed2 in a simulated emergency incident
response, including key and recently trained staff;
Evaluate MAX (new incident management platform) and its operability with other
DAFWA relevant systems in a simulated operational emergency environment;
Develop, test and evaluate the practicality of a disposal plan for large scale livestock
destruction in the south west region of WA, including associated resource and
operational plans; and
Engage with, practise, integrate and enhance the awareness of key stakeholders
(National Rapid Response Team (RRT)), including local government, other agencies
and industry in their roles in a simulated WA emergency incident response.
“Greatest learning exercise I have had in DAFWA”
DAFWA Participant – Incident Controller
Caption. Exercise APOLLO LCC Operations 17 May 2016
2 There were opportunities for DAFWA and RRT to undertake workplace assessment to finalise training and certification
requirements.
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Scope of Exercise APOLLO
Exercise APOLLO was conducted as a functional exercise, building on the exercise scenario
from ODYSSEUS 2014 (National Livestock Standstill Exercise). The exercise required the
establishment of an operational State Co-ordination Centre (SCC) and Local Control Centre
(LCC) co-located in separate facilities, Bunbury State Government precinct, Western
Australia.
DAFWA personnel, RRT participants, industry and personnel from other relevant WA
government agencies were required to fulfil their roles and responsibilities within these
centres, as required by arrangements detailed in AUSVETPLAN, the State Emergency
Management arrangements including Westplan3 and DAFWA’s Incident Management
Manual.
The Exercise APOLLO scenario was based on an outbreak of Foot and Mouth Disease
(FMD) and focused on testing MAX and disposal arrangements. In addition, Exercise
APOLLO was designed to include and test the provision of support from other jurisdictions,
notably national RRT and industry support in the form of new Industry Liaison and Industry
Specialist Advisor roles and functions as detailed in AUSVETPLAN.
Exercise APOLLO was also preceded by a number of workshops and training activities
designed to focus participants on specific functions, in addition to preparing participants in
the lead up to executing the exercise.
There were no field operations or deployments during the exercise. Field-based scenario
injects were simulated by Exercise Control.
Caption: WA CVO industry Consultation
3 Westplans are established under the WA Emergency Management Act 2005. Westplans are developed for specific hazards
requiring a coordinated response and detail the roles and responsibilities of supporting.
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Participating Organisations
The following organisations participated in Exercise APOLLO:
DAFWA personnel;
Other States’ and Territories’ agriculture or primary industries departments eg.
national RRT members;
Animal Heath Australia (AHA);
Australian Government Department of Agriculture & Water Resources (DAWR);
Western Australia Police and Emergency Services representation;
Western Australia Department of Environment Regulation (DER);
Western Australia Department of Health;
Western Australia Department of Main Roads;
Western Australia Department of Parks and Wildlife;
Western Australia Department of Fisheries;
Representatives from relevant livestock industry groups, peak bodies and associations
including Western Australian Farmers Federation (WAFarmers), Pastoralists and
Graziers Association of Western Australian (PGA), and the Cattle Council.
Local and State Government representation, to include Local and District Emergency
Management Committee representation; and
Animal welfare agencies eg. RSPCA.
Exercise APOLLO Scenario
The scenario for Exercise APOLLO was based on a simulated outbreak of FMD in the Bunbury regional area, building on Exercise ODYSSEUS (National Livestock Standstill exercise) scenario data.
The Exercise APOLLO storyline was introduced to Incident Management Team (IMT)
participants, commencing 14 May 2016 via email injects over a 36 hour period prior to the
IMT workshop held 16 May 2016. This activity was designed to simulate a real time incident
response, including pressure through realistic time constraints and have IMT participants
workshop their response priorities based on the information they knew at that time.
While the ODYSSEUS scenario/data was used initially (lead in information with respect to
setting the scene), exercise control introduced the APOLLO storyline based on real-time data
obtained from Boyanup Saleyard 12 May 2015. This saleyard data culminated in 1128
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livestock sold to 69 properties across the South West. At the end of exercise the control
centres had confirmed ten properties infected directly from the sale, including three
neighbours. A number of primary industries were directly affected including a feedlot, dairy
and one indirect contact infection at a piggery.
Affected livestock numbers at the end of exercise were consistent with what would be
expected during a real time incident response. In two and half days Exercise APOLLO
participants had confirmed and identified a total of 82,365 livestock infected or at high risk of
infection (9870 cattle; 70495 sheep; and 2000 pigs). Investigations into suspect and trace
premises (9 and 51 respectively) were ongoing at the end of the exercise.
As a result, the data and storyline was realistic and more importantly credible. As the
scenario evolved, exercise decisions and outputs from the various functional areas provided
additional detail, which were then, in turn used as inputs to drive subsequent activities,
response planning and operations.
Observations:
Investment by way of dedicated and experienced staff as part of the planning team to
coordinate and develop realistic scenario injects aligned to real time data is vital to
maintaining the credibility and integrity of an exercise scenario.
The use of real time data was critical to ensuring that the APOLLO scenario was
realistic – this reduced the risk of the activity becoming artificial and potentially
disengaging participants.
The sequencing of data and scenario injects is critical to establishing a realistic
storyline and simulating a credible response rhythm.
Real time data facilitated the use of DAFWAs information systems within the
response, which contributed to the realistic nature of the exercise.
The use of real data/information systems enabled the critical review of departmental
systems, policy and processes.
Recommendations:
Future exercises on the scale and scope of APOLLO, should be based where possible
on real time data to ensure that response systems, policy and processes are subject
to stress/critical review. This will facilitate the identification of deficiencies and
capability gaps within the response systems, policy and processes that need to be
addressed.
Exercise scenario design needs to be resourced by experienced and dedicated
personnel with the technical background to ensure that the scenario is credible. This
will significantly reduce the risk of an exercise being perceived as artificial and
participants disengaging from the activity.
Exercise Management
The management of Exercise APOLLO was a success and a key theme in participant
feedback. The majority of participants reported that the exercise scenarios and activities were
relevant, that they were engaged in the exercise, and that the exercise ran smoothly and in a
coordinated manner.
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An analysis of the feedback identified that approximately 88% of participants indicated that
the management of the exercise was within the ‘excellent’ to ‘high range’ of responses as
detailed in the graph below.
Caption. Greater than 88% of participants reported favourably against exercise management.
This can be attributed directly to comprehensive design and planning, which resulted in a
credible activity. Exercise participants were engaged, a large number of participant
comments focused on the realistic nature of the exercise and that most participants had to
remind themselves that it was an exercise and not a real time response.
The exercise scope and concept development was critical to the success of the exercise.
Exercise scoping and concept development commenced in May 2015, with the appointment
of a dedicated exercise manager. The exercise manager was supported by a small team of
DAFWA personnel. The DAFWA team engaged DAFWA Executive and received agreement
for exercise aim and objectives via the APOLLO Steering Committee in early July 2015. The
exercise scope and objectives were endorsed, which enabled detailed planning to commence
in late July 2015 with external support from AHA, DAWR and QLD DAF.
Dedicated personnel and resources from within DAFWA and support from external
jurisdictions were invaluable to the planning of the exercise. In addition, the strong support
from the DAFWA Executive via the implementation of the APOLLO Steering Committee
enabled the Exercise Planning Team to manage identified risks and issues, co-opt resources
as required and deliver critical outcomes and objectives as the design and planning
progressed.
0 20 40 60 80
I received adequate information about the arrangementsin preparation for the Exercise.
Joining instructions were suitable.
The Exercise logistics and resources were appropriate.
I knew what I was supposed to do in the exercise.
The exercise ran smoothly in a coordinated manner.
I was fully engaged in the exercise.
Exercise scenarios and activities were relevant.
Exercise Management
COMPLETELY / AGREE / EXCELLENT / WORKED VERY WELL HIGHER RANGE RESPONSE
MID RANGE RESPONSE LOWER RANGE RESPONSE
NOT AT ALL / DISAGREE / POOR / DIDN'T WORK
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Caption: Ex APOLLO - DAFWA DG and Executive Directors support was essential.
The scheduling and sequencing of key exercise planning and control activities was executed
very well and directly contributed to the success of the activity. In April 2016 the exercise
planning team conducted a scenario validation workshop over three days where the planning
team critically reviewed the scenario, sequencing, exercise inputs/injects and exercise
program. This activity identified a number of key gaps in the scenario data, storyline and
sequencing, which were addressed by the planning team prior to the exercise commencing.
This activity also confirmed expected exercise outputs, which were subsequently mapped
against evaluation and facilitator guides, which formed the basis for the Exercise Control
briefing held at the start of APOLLO. This activity was critical to the success of APOLLO, it
validated the exercise scenario and provided an opportunity to address deficiencies and
consolidate the planning teams (prior to transitioning to Exercise Control) knowledge and
expected outputs against key objectives. Activities of the scale and scope of APOLLO need
to adopt a similar program to ensure that any future exercises are well planned and
executed.
The exercise planning team transitioned to Exercise Control on the 14 May 2016. Exercise
Control was housed in a separate facility and consisted of personnel from DAFWA, industry,
AHA and State and Commonwealth departments managing a range of exercise scenario
inputs. Functional areas of exercise control worked well and contributed to the ability to
assess exercise objectives. Exercise control coordinated all aspects of the exercise, including
media, observers, scenario tracking team (including Industry representation), disposal
experts, evaluation and control centre facilitators. The timeliness of inputs and exercise
control flow worked very well which supported the realistic environment for participants.
The administrative and logistic support provided by the logistics team was outstanding, well
planned and fully functional with respect to facilities, catering, layout, technology and social
functions. The logistics team were critical to control centre set ups, prepositioning all
required resources, in addition to coordinating exercise participants on arrival Monday
afternoon. Initial induction and social function prior to the commencement of the functional
exercise were important as it provided an opportunity to meet respective control centre staff,
functional area personnel, in addition to participants from other jurisdictions.
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Insufficient time was allowed for induction processes. This was further exacerbated by travel
disruptions between Perth and Bunbury, which shortened some of the planned induction
workshops and possibly exacerbated some participants’ disorientation on day one. However,
this also contributed to a more realistic nature of the exercise as you would, in a real time
response have staff arriving throughout the initial 24 to 48 hours of a response.
More time at induction with respect to orientation in the information technology area –
particularly with respect to document access and management (i.e. Objective), MAX
familiarisation, local drive access to AUSVETPLAN, Westplan and WA based SOP’s,
including orientation to operational business approval processes may have saved a lot of
‘settling in time’ in the first day of the exercise; however, this also added to the realistic nature
of a simulated response.
Also the provision of clear role descriptions at induction for participants would have assisted
with initial orientation and an introductory briefing on the technology may have assisted the
interstate participants during the initial stages of this exercise.
Some respondents reported that they would have liked more information prior to the exercise
to help them prepare, while a small number of participants reported that they were not sure of
their role in the exercise. Inductions could have been more detailed for some participants
who were left unsure of their role and arrangements.
A number of information and lead in exercises were provided to participating DAFWA staff.
However, some staff didn’t have time to participate in these activities or make use of the
information provided before the exercise. This contributed to some staff feeling like they were
inadequately prepared.
The available space to work in was a challenge for some participants who reported that it
was a bit cramped on day one. However, availability of suitable workspace is often an issue
during fast breaking, high volume incidents and as such contributed to the realistic nature of
this exercise.
Caption. Ex APOLLO – Exercise Control
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Exercise Control could have benefitted from additional stakeholders being present in Excon
such as local government and emergency agency services (fire, police, roads). However, the
absence of these additional representatives did not detract from the overall success of the
exercise. However, further activities of this scale and scope should look to include external
representation in Exercise Control to enable engagement activities and enhance
understanding and awareness by external stakeholders critical to supporting a biosecurity
incident.
Observations:
Comprehensive exercise design and planning contributes to a credible activity.
Implementation of an appropriate governance structure (APOLLO Steering
Committee) enabling executive support and sponsorship was crucial to the success of
APOLLO.
Resourcing an exercise planning team with experienced and dedicated personnel, to
include external representation to manage, coordinate, co-opt resources and deliver
critical outcomes and objectives reduces risk.
Exercise validation workshop by the planning team is essential to ensuring that an
exercise is well planned, realistic and sequenced appropriately.
The inclusion of external representation within the planning team and exercise control
is invaluable (industry, state and federal government representation).
The appointment of a dedicated and experienced exercise manager to coordinate and
plan an exercise of a similar scale and scope to APOLLO is critical.
Experienced logistic and administrative support is a must with respect to establishing
and supporting an exercise of this scale and scope.
Utilisation of cross jurisdictional and industry engagement / support is essential to
planning and activity of this scale and scope.
Preparing for Exercise APOLLO required a massive commitment on behalf of DAFWA
exercise participants to undertake training and prepare for their role. Some staff were
unable to make the level of commitment required for a seamless transition to their
response role.
Recommendations:
Future exercises of similar size and nature should be delivered by a dedicated team
similar to the way that APOLLO was planned and executed.
Implementation of an effective governance structure/executive support is essential.
Activities of this scale and scope need to adopt an exercise validation
workshop/program to evaluate the exercise program, sequencing, scenario and key
outputs within 4 – 6 weeks prior to conducting the activity.
Exercises of this scale and scope should engage external representation within
Exercise control to contribute to scenario flow and external injects/inputs.
Joining Instructions and induction information should be sufficient to address any
information gaps and clarify exercise rules, procedures, and roles where possible.
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Objective 1
“Provide participating DAFWA staff with the opportunity to practise emergency response
roles and functions and be assessed in a simulated emergency incident response, including
key and recently trained staff.”
The opportunity for DAFWA personnel to participate in a major functional exercise was well
received. The realism of the exercise and likeness to an actual response scenario was
appreciated and valued by participants.
An analysis of the feedback and commentary indicates that approximately 90% of
participants reported in the higher range of responses. There was constant pressure created
via competing demands/requests for information, action and decisions which contributed to
the realism of the activity. Overall participants and feedback indicated that this activity did
enhance their integration, effectiveness and experience as indicated by the following graph.
Caption: Greater than 90% of participants reported favourably against the achievement of this Objective.
The exercise provided a realistic framework to test personnel who had recently completed or
are in the process of finalising their emergency response training. Rotating roles and
functions for managers within functional areas also provided an opportunity to maximise the
experience of all participants while learning concurrently from each other. Overall exercise
participants noted it was a great opportunity to consolidate; however, there is an
acknowledged requirement for ongoing reinforcement of this type of training on a regular
basis.
The IMT workshop on Monday afternoon consolidated the initial APOLLO inputs (storyline)
and developing WA scenario for participating IMT personnel. Based on the information
provided, the IMT updated the Emergency Animal Disease Response Plan (EADRP),
established and prioritised initial response aims and objectives for their respective co-
ordination centres. Incident controllers were then in a position to brief their respective
0 10 20 30 40 50 60
This objective was achieved
Effectiveness of Incident Management
Effectiveness of Disposal Planning
Integration and coordination of RRT, State andnon-State resources and agencies
Level of expertise of agencies in incidentresponse was enhanced
Objective 1 COMPLETELY / AGREE / EXCELLENT / WORKED VERY WELL HIGHER RANGE RESPONSE
MID RANGE RESPONSE LOWER RANGE RESPONSE
NOT AT ALL / DISAGREE / POOR / DIDN'T WORK
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personnel the following day on current situation and response priorities. The activity was
worthwhile, it was stressful as noted by some of the participants. However, the IMT did
achieve the aim of the activity. Future exercises of this scale and scope should adopt a
similar approach as it transferred ownership of the scenario and response issues to the IMT,
which is where it resides in an exercise.
The control centre set ups were fully functional, including access to the relevant
administrative and operational systems and processes, which allowed participants to focus
on the scenario, their roles and functions within the simulated response. Exercise participants
also acknowledged that APOLLO was a great opportunity to train and develop new staff, or
staff with limited operational experience in response roles and expectations in a medium to
large response.
The LCC and SCC were fully staffed with functional areas of the centres contributing to
response operations. SCC functions were delayed initially as the response staff bedded into
their roles. Nevertheless sections started to prepare the required plans and documents in an
orderly and timely manner (e.g. EADRP, communications plan, operations and surveillance
plans, mapping, defining State restricted and control areas etc), which informed LCC
operations. There were some disconnects initially due to communication and / or duplication
of effort with respect to clarity around who was responsible for various outputs and decisions.
SCC and LCC Logistics were able to scope and identify external contacts that needed to be
maintained in peace time ahead of anticipated events (e.g. lists of livestock vet contact
details, Local Government contacts, IT contact list, accommodation and catering available
locally).
Intra and inter-control centre communications were the biggest challenge faced. Functional
area workflows were overloaded which resulted in delays. In some respects this can be
attributed to establishing a response, which is normal and there was a significant
improvement to workflow across both co-ordination centres as the exercise progressed;
however, work and opportunities to practise are needed to improve this, including clarity
around response roles and responsibilities.
Information workflow is critical to enabling effective and timely decision framework. At times
participating DAFWA staff at the IMT level were not confident to make or exercise decisions
and authorities appropriate to their role or function. This resulted in the Incident Controllers
getting delayed and immersed in detail, which had flow effects with respect to the
dissemination of information within the centres and between centres.
The interaction of Chief Veterinary Officer (CVO) in the response was appreciated and
highlighted how the decision making timeframes of the CVO were a crucial factor in any
response. The CVOs decision cycle was impacted on and could have been enhanced by the
delegation of many duties such as delivery of key messaging and premises status allocation.
Overall though this did not detract from the activity, it did however; highlight the importance of
support staff, as there is potential to overwhelm the CVO in a large exercise or response.
This has the capacity to contribute to delays and effective communication workflows at times
between co-ordination centres.
Many outcomes depended on the CVOs decision cycle, these included declaration of case
status, premise classifications, outline of restricted area (RA), control zones and confirmation
of policy such as stamping out and or Dangerous Contact Premises (DCP’s). Importantly the
CVO is critical to facilitating and invoking response cost sharing arrangements. Cost sharing
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arrangements were not exercised as part of APOLLO; however, it is an area that was
highlighted by participants as critical and requires a collective effort and policy guidance in
future to ensure WA gets it right.
Contributing factors to communication and workflow issues during APOLLO did have multiple
effects in disrupting the response, creating inefficiencies and duplication of effort. An analysis
of the participant responses and debriefs indicates that there were a number of disconnects
with respect to defining authority v’s decision making. It is also important to keep the activity
in context; as there was significant improvement as the exercise progressed; workflows and
communication did improve as the SCC and LCC established a response rhythm and
personnel became comfortable with their roles and functions.
Key to enabling control centre functions is a review of the new AUSVETPLAN Control Centre
manual with a view to clarifying control centre functions. In its current format it is not suitable
for use as a just in time tool. Observables during APOLLO indicated that at times SCC were
focused on LCC operational activities, priorities and managing tasks rather than facilitating
state/strategic agreements, policy and arrangements with key internal and external
stakeholders to facilitate the response. The relationship is critical and needs to be clearly
articulated in the control centre manual to avoid duplication and minimise confusion during
the establishment of a response.
Training and response induction needs to include guidance on the differences between
authority and decision making. There is a significant difference between day to day business
and incident response. The difference is critical and needs to be reinforced to enable and
empower personnel to exercise the authorities and delegations appropriate to their position
and function during a response.
Broad observations and interim recommendations are based on feedback to date and will be
subject to detailed analysis and recommendations within the evaluation report. General
observations and recommendations are as follows:
Observations:
Generally fantastic business and logistics support for the entire exercise. Some minor
confusion by participants with respect to guidance and procedures on how, where,
what resources are required and where to get them from.
Participants noted that they required greater awareness of foundation policy and
processes such as AUSVETPLAN, DAFWA specific policy and processes with respect
to authorities, delegations, information flows and technical (disease specific) details.
Participants highlighted that they didn’t have time to read policy; this is always going to
be an issue and one that may be minimised via role specific training, awareness
sessions and potentially workshops for identified personnel who would be employed in
a response.
Tracing and surveillance sections need to be resourced appropriately, particularly in
the first 48 hours of a response as it is critical to defining the scale and scope of a
response. An observation made by participants, including interstate personnel, is that
APOLLO confirmed that there is a national shortage of personnel who are
appropriately trained and experienced in veterinary investigations, one that needs to
be addressed from a national perspective.
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Process deficiencies (workflows) contributed to inefficiencies with respect to
operational decisions, which had flow on effects with respect to intra and inter control
centre operations and communication.
Duplication of effort with respect to response policy i.e. communication between
Operations and Planning in both centres impacted on effectiveness initially.
Establishing and promulgating control centre meeting schedules. The scheduling of
some meetings were not productive and needs to be controlled by incident controllers
– has significant flow on effects with respect to critical response information and
prioritisation of tasking’s at all levels within control centres.
Whilst not an objective of APOLLO, some exercise participants identified that they had
very little understanding on how to establish cost sharing arrangements and indicated
that clear and concise policy would be critical for a real time response on the scale
and scope of APOLLO.
Recommendations:
Specific process and policy recommendations will be subject to an Exercise APOLLO
Evaluation Report. Broadly the evaluation report will recommend that DAFWA
establish working groups to address functional area recommendations to include:
o Guidance with respect to clarifying authorities and delegations in an incident
response to facilitate decisions and intra and inter control centre workflows.
o Guidance with respect to establishing control centre incident daily schedules to
enhance operational effectiveness.
o Guidance with respect to seeking and establishing effective cost sharing
arrangements.
o DAFWA to progress the review and development of operational response policy
and procedures. The following is an example of policy and SOPs identified by
participants requiring review; Premise classifications, destruction, disposal, animal
welfare, surveillance, electronic filing and version control of response information
(objective).
Consider resourcing non coordination centre functions to facilitate an emergency
response i.e. CVO unit.
DAFWA should continue to look for opportunities to practise emergency response
roles via role specific training, workshops or awareness sessions to consolidate
training, foundation policy and processes. Specific focus should be on awareness and
understanding of operational roles within a response by identified IMT personnel.
DAFWA maintains a current regime of emergency response training and awareness
across DAFWA to further enhance the department’s preparedness and capacity.
“Great learning opportunity for staff to practice what they have learnt through training. Good
opportunity to engage with key stakeholders and demonstrate DAFWA's role in emergency response”.
Senior DAFWA participant - LCC
Objective 2
“Evaluate MAX and its operability with other DAFWA relevant systems in a simulated
operational emergency environment.”
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For many personnel it was the first time they had been exposed to MAX. This presented a
number of limitations due to user inexperience and limited training. Data entry was slow and
use of maps was limited initially; however, familiarity with the system increased during the
exercise. The majority of MAX users recognised that the functionality of MAX has the
capacity to significantly enhance the effectiveness and efficiency of a response. This will
require ongoing integration of MAX functionality, policy and procedures to support its use in
business as usual where practical. An initial analysis of the participant feedback indicates
that greater than 80% of personnel indicated in the high to excellent range against this
objective.
Caption. Greater than 80% of participants reported favourably against the achievement of this Objective.
MAX was utilised as the incident management platform alongside the DAFWA shared
document platform Objective. There were no fundamental obstacles from data management
that disrupted the exercise, although familiarity with MAX and at times Objective was a
challenge. MAX generated maps and tracings, which were projected onto visual displays
inside the SCC and LCC. Case records and data were managed and situation reports were
generated from MAX throughout the exercise, although it is acknowledged that it is a new
system and at times it was inefficient.
The exercise reinforced that the SCC and LCC requires seamless access to electronically
shared documents that capture all versions and approvals for governance accountability and
transparency. While the functional applications were limited to the FMD template in MAX, it
was acknowledged that the platform can offer a greater level of functionality across the
department and should be incorporated into business as usual for greater optimisation where
practical.
Participants found that the reporting tools within MAX were very good generally. Case
management reporting needs to be explored further as participants indicated that this feature
was not used well in APOLLO with respect to tracking destruction, disposal plans, allocation
of resources and tasks against identified premises. The use of email alerts within the system
0 5 10 15 20 25
This objective was achieved.
Data was entered, search for records conducted,tracing priorities generated.
Reports were compiled and generated.
Maps were generated.
Other functions of MAX were used such as issuesregister, records of conversation, and task requests.
Objective 2 COMPLETELY / AGREE / EXCELLENT / WORKED VERY WELL
HIGHER RANGE RESPONSE
MID RANGE RESPONSE
LOWER RANGE RESPONSE
NOT AT ALL / DISAGREE / POOR / DIDN'T WORK
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needs to be further explored, for example on entering a PIC as a trace or case premise within
MAX the LCC relied on word of mouth or briefings, the use of alerts would have minimised
duplication of effort by functional areas within the centres as personnel would have been
notified by MAX as the classification change.
Clarification and procedures with respect to workflows within MAX are required and will need
to be subject to whole of agency approach as the capability matures and rolled out through
DAFWA. A couple of good examples highlighted in APOLLO is the ability for MAX to manage
the workflow and data within veterinary investigations, the ability for MAX to trace forward
and backwards, in addition to generating a case to track field surveillance tasking’s and visits.
Caption. Integration of MAX in emergency response is crucial.
A relevant feature of MAX, identified by participants is that it can be remotely accessed in the
field using mobile devices for surveillance team data input – meaning immediate information
flow in a real-time response. Occupational Health and Safety considerations can also be
addressed, including tracking of staff health records, physical tracking of vehicles by GPS
and electronic welfare check ups via SMS.
It is a preferred outcome that scenario, data and electronic files from this exercise (in addition
to DAFWA/Objective storage requirements) get stored within the Campaign tab in Max. This
data, has the potential to be used for future training or reference in emergency preparedness
workshops or role specific training by DAFWA.
While MAX was limited to FMD template testing during the exercise, participants as they
became familiar, began to explore the functionality of the system. It is acknowledged that the
system has significant capacity with respect to managing and supporting an emergency
response and potentially business as usual for DAFWA. Integration into DAFWA day to day
business would provide a mechanism to enhance staff’s knowledge and familiarity with the
system on an ongoing basis.
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Observations:
Although the functionality of MAX was limited for the purposes of APOLLO, it was
acknowledged that the platform has the capacity to offer a greater level of functionality
across the department both in emergency response and business as usual.
Ex APOLLO participants indicated that the MAX reporting tools utilised in APOLLO
where good. Further training and familiarity with the system by staff with respect to
functions will enhance utilisation and effectiveness.
APOLLO scenario highlighted that the ability of remote access from field surveillance
teams would be advantageous by facilitating information flow in a real time sense back
to the control centres.
APOLLO highlighted that MAX workflows were an issue and requires policy,
processes and training to support.
MAX functionality and integration with other DAFWA information/data systems needs
to be fully explored.
Recommendations:
DAFWA to pursue cross agency solutions to address integration, functionality, policy
and process to enhance MAXs utility and the department’s capacity and
preparedness.
DAFWA to increase training in MAX and to consider its integration into business as
usual where practical.
DAFWA to capture and store a copy of all APOLLO data and electronic files within the
campaign tab in MAX for future training activities where practical.
“The importance of an info system can’t be overstated. We saw a good transition from word-of-mouth
to reporting to resilience on the system. It’s not a nice to have, but a "force-multiplier". Max worked
well - people began to use it better during the exercise”.
Tracing and Surveillance Team Member
Objective 3
“Develop, test and evaluate the practicality of a disposal plan for large scale livestock
destruction in the South West region of WA, including associated resource and operational
plans.”
Activity in this area was undertaken in two parts.
Firstly, an Expert Disposal Group (EDG) was convened to consider a draft disposal plan.
Included in this group on day one were external representatives and DAFWA personnel. In
excess of 20 external State Government representatives attended including Department of
Environment and Regulation, Main Roads, Police, Department of Parks and Wildlife, Shire
and Local Government emergency representatives.
The LCC Disposal Planner had prepared a decision spreadsheet for open discussion at the
external stakeholders meeting. However, a draft disposal plan was not pre-prepared. Instead
the discussion was focussed on technical policy aspects, limited to a few personnel only and
not appropriate or applicable to the group which had been convened. Stakeholders were
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required for the validation of a draft disposal plan, not there to participate in the planning
process. As a result there was a certain amount of confusion, in addition to a level of
frustration. After approximately two hours many of the external representatives considered
their continued attendance not necessary and left.
A subsequent plan to reconvene the EDG as members of an Operational Area Support
Group on day two was initiated by Exercise Control. This subsequent activity was facilitated
in a controlled manner framed around the WA disaster arrangements. No planning options
were employed past a general discussion of stakeholders present at the meeting to inform
each agencies roles and expectations under Westplan – animal and plant biosecurity.
Resources in the form of mapping, proposed plan drafts and disposal option spreadsheets
were available at this meeting.
Participation and engagement by all relevant stakeholders was good. Although testing and
evaluation of the practicality of a disposal plan was not achieved, understanding of key
themes relevant to destruction and disposal, scale and scope of an EAD response, disease
control implications, and situational awareness provided a good foundation on which to base
further engagement with respect to State-wide disposal planning. External stakeholders
attending the Disposal Planning meetings were able to establish what their respective
organisational expectations were and what requirements would be during a real-time event.
All external stakeholder participants agreed that their understanding of the collaboration
between government and industry during an animal emergency event was enhanced around
disposal planning on day two. This is a positive outcome and will drive future stakeholder
engagement in emergency preparedness activities by DAFWA.
Secondly, a lack of a timely communication, approval processes and decisions from the EDG
delayed the LCC from pursuing disposal planning. LCC planning participants indicated that
the EDG activity held up the process of destruction and that there was a level of uncertainty
of how the EDG contributes to LCC and SCC operations and planning functions by
participants.
Other observations and comments by internal participants indicate that there would be
benefit from running role specific training with respect to disposal planning, to include how
the EDG contributes to that process. All participants commented that there is significant
scope to have pre-prepared plans on destruction and disposal activities to include agreed
and availability of existing disposal and commercial landfill sites in consultation with relevant
agencies.
Further confusion was also noted on destruction and disposal authorities and delegations
within the control centres. Participants indicated that there were delays due to confusion
between centres with respect to who or what function has the power, authority or
responsibility for issuing plans and orders. For example there were delays in issuing
quarantine orders and authorisation of the APOLLO destruction plan during the exercise.
This objective was subject to a lot of scrutiny, planning and unfortunately, in some respects it
was a missed opportunity. From a general perspective internal participants and external
stakeholders gained a lot from this objective. Both the EDG and LCC planning team came up
with planning suggestions, an agreed interim plan was developed that covered the immediate
requirements for the purposes of APOLLO – but the delivery, testing and evaluation of a
disposal plan for an amplified real-life situation of an FMD in South West WA was stalled and
not achieved.
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Essentially the disposal objective for APOLLO created more questions than answers.
Basically it is a good place to start noting that there needs to be ongoing consultation with
external stakeholders to include industry, training for disposal activities within the department
and a desire to have in place pre-determined plans that have in principle agreement by the
relevant authorities and stakeholders.
As previously identified by DAFWA there is a requirement for an ongoing regime of external
stakeholder awareness briefings on biosecurity emergency response. These briefings and
awareness sessions need to highlight potential external support requirements and
expectations as highlighted during the EDG activity in APOLLO.
An initial analysis of the participant feedback indicates that greater than 62% of internal and
external personnel reported favourably against this objective in the mid to high level range.
Caption. 62% of participants reported favourably against the achievement of this Objective.
Observations:
External stakeholders under Westplan-Animal and Plant Biosecurity arrangements
play a significant role in supporting and coordinating operational aspects of an
emergency biosecurity response.
Both the EDG and LCC planning team came up with disposal plan options, an agreed
interim plan was developed that covered the immediate requirements for the purposes
of APOLLO – but the delivery, testing and evaluation of a departmental ‘draft’ disposal
plan was stalled and not achieved.
0 2 4 6 8 10 12 14 16 18
This objective was achieved.
The disposal plan was practical and effective.
Planning options were utilised.
Suitable and appropriate resources were available
The understanding of issues surrounding large scale carcassdisposal by government and industry stakeholders was
enhanced.
Objective 3 COMPLETELY / AGREE / EXCELLENT / WORKED VERY WELL
HIGHER RANGE RESPONSE
MID RANGE RESPONSE
LOWER RANGE RESPONSE
NOT AT ALL / DISAGREE / POOR / DIDN'T WORK
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EDG objective was a missed opportunity in some respects; although internal and
external participants all agreed that it was a worthwhile activity.
External stakeholder participants agreed that their understanding of the collaboration
between government and industry during an animal emergency event was enhanced
on day two.
Oversight by APOLLO Steering Committee with respect to disposal planning/activities
was minimal.
DAFWA destruction and disposal personnel would benefit from role specific training in
the destruction and disposal space, to include authorities and delegations, in addition
to how the EDG contributes to that process.
Prior understanding by DAFWA personnel of roles, responsibilities and expectations of
agencies under Westplan is essential.
Recommendations:
Further stakeholder engagement with respect to State-wide disposal planning be
undertaken as a priority with a view to the establishment of an in principal State-wide
disposal plan, including pre-agreed disposal sites.
DAFWA to evaluate/implement role specific training within destruction and disposal
capacity to upskill staff and enhance understanding of policy, procedures and linkages
between EDG, to include how external stakeholders (including Industry) contribute to
the process.
Define and clarify destruction and disposal authorities and delegations within control
centres against functions to enhance decision making frameworks.
Objective 4
“Engage with, practise, integrate and enhance the awareness of key stakeholders (Rapid
Response Team), including local government, other agencies and industry in their roles in a
simulated WA emergency incident response”.
The Exercise was successful to varying degrees in engagement of stakeholders while
practicing a simulated WA emergency response. National RRT participant feedback was
overwhelmingly positive. As previously identified, external representation from WA local and
state agencies involved in the EDG activity was varied, and Industry participant feedback and
experience was influenced by ‘where they were employed’ and ‘how they were engaged’ in
the simulated response.
Generally responses can be attributed to understanding and awareness regarding roles,
responsibilities and expectations of functions during a response by all participants. Naturally
national RRT personnel have a higher appreciation and awareness of roles, responsibilities
and expectations regarding response functions within biosecurity, as opposed to Industry or
external local and state government representatives.
National RRT enthusiasm and integration as participants, mentors and members of the
exercise control element was excellent. RRT personnel were impressed with the planning
and conduct of the exercise and expressed a collective finding that APOLLO exceeded
expectations. Further feedback indicated that APOLLO provided a valuable opportunity to
network with peers from different jurisdictions.
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Overall feedback from RRT participants confirmed that their understanding of WA biosecurity
incident response and WA state emergency management frameworks were enhanced.
DAFWA staff mentoring by national RRT personnel was well received and appreciated,
noting that exercises like APOLLO provide a safe environment in which to engage and learn.
There was some anecdotal commentary with respect to inadequate RRT experience, training
and background in some functions. A small number of personnel deployed as part of RRT did
not have the required training, experience and background in the roles and functions
allocated during APOLLO. Nevertheless they still found the activity worthwhile. However, this
did highlight that potentially the AHA/RRT nomination and selection processes may need to
be reviewed to ensure that RRT is resourced with appropriately trained, experienced and
qualified personnel.
Overall the key objectives for RRT were met as APOLLO did provide an opportunity to work
and integrate in a different jurisdiction; APOLLO did enhance partnerships across the
biosecurity spectrum and improve response capacity and experience.
“A good profiling activity for DAFWA to demonstrate its capability and preparedness to respond. Great
networking opportunity for all involved.”
RRT Member
An initial analysis of the external feedback (majority attributed to RRT members) indicates
that greater than 90% of personnel reported in the high to excellent range against this
objective.
Caption. 90% of participants reported favourably against the achievement of this Objective.
In 2015 a new model for industry support in a biosecurity response was endorsed by Animal
Health Committee via an Industry Forum. The new roles and responsibilities were identified
as Liaison – Livestock Industry; and Specialist Advice – Livestock Industry. Agreed roles and
responsibilities have been defined within AUSVETPLAN - Control Centre Manuals.
0 10 20 30 40
This objective was achieved.
The RRT and relevant livestock industry personnel wereintegrated in to the response.
Stakeholder understanding was enhanced by beinginvolved.
Relationships were enhanced between stakeholders.
Objective 4 COMPLETELY / AGREE / EXCELLENT / WORKED VERY WELLHIGHER RANGE RESPONSEMID RANGE RESPONSELOWER RANGE RESPONSENOT AT ALL / DISAGREE / POOR / DIDN'T WORK
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On April 27, 2016 AHA ran a one-day pilot workshop in WA ahead of exercise APOLLO. This
provided an opportunity to evaluate the AHA pilot workshop and prepare industry participants
for APOLLO under the new model. The pilot workshop has been subject to feedback from
industry and a number of recommendations are being pursued, such as identifying
opportunities to train industry members and government personnel together to build a shared
understanding of the function.
During exercise APOLLO, Livestock industry representatives were integrated into both the
liaison and specialist advisor positions within the SCC, LCC and Exercise Control.
Participating industries included Australian Lot Feeders Association, WA Farmers,
Pastoralists and Graziers Association of Western Australia, Cattle Council of Australia, Wool
Producers and Dairy Australia.
While participating personnel from industry believe that the exercise was worthwhile and
valued participation, there was a general consensus that they were underutilised.
Consultation with industry was described as being a key area of this exercise. The
experience of industry representatives were different dependant on whether they were
employed in the LCC or SCC. This did improve over the conduct of the exercise; however, it
is a significant learning from this activity and highlighted a lack of government understanding
regarding new industry functions and how best to support and integrate industry functions
within a response.
Feedback from both industry and internal participant’s indicated that engaging industry in a
response requires improvement, particularly with greater government and industry
awareness of ‘new’ roles and responsibilities under AUSVETPLAN. This can also be
extended to include the development of relationships and ongoing engagement between
industry and government; to include enhanced awareness of industry response roles under
shared responsibility frameworks.
Importantly industry and government responsibilities need to include clear guidance on
obligations with respect to the sharing of information between functional areas of control
centres and industry functions. APOLLO did highlight confusion with respect to sharing
information i.e. what can/should be provided to industry versus what is publically made
available. DAFWA, AHA and Industry need to review roles and responsibilities to enable
shared responsibility through shared decision making principles that facilitates a response,
underpinned by engagement and accountability.
Observations:
National RRT objectives and aims were achieved.
APOLLO was variably successful in engaging external stakeholders in a simulated
emergency animal disease response.
External participant feedback indicated that their experience in APOLLO varied
significantly dependant on ‘where they were employed’ and ‘how they were engaged’.
In general - roles, responsibilities and expectations of external stakeholders is not well
defined or understood by either external representatives (Industry, including local and
state government representatives) or government participants.
Feedback from both industry and internal participant’s indicate that engaging industry
in a response requires improvement. DAFWA needs to focus on greater government
and industry awareness of ‘new’ roles and responsibilities under AUSVETPLAN.
Page 24 of 25
Industry believed that APOLLO was worthwhile and valued participating, but there was
a general consensus that they were underutilised.
Recommendations:
Nomination and selection processes should be reviewed to ensure that RRT is
resourced with appropriately trained, experienced and qualified personnel4.
DAFWA, AHA and Industry need to review roles and responsibilities to enable shared
responsibility through shared decision making principles that facilitate information
sharing where practical.
AUSVETPLAN - Control Centre Manuals to be reviewed to clarify roles and
responsibilities that facilitate information sharing.
Maintain and continue to build key relationships and training opportunities with
industry and external stakeholders.
Conclusion
Exercise APOLLO was a success and importantly demonstrated DAFWA’s continued
investment and commitment to enhancing its capacity, capability and preparedness to
respond to biosecurity incidents within Western Australia.
The planning, scenario, business and logistic support were comprehensive and contributed to
a credible exercise. Essentially APOLLO was effective in assessing WA arrangements,
prescribed objectives within a controlled and simulated environment.
While there were some challenges with respect to communication and utilisation of external
representatives, APOLLO provided a mechanism on which to gauge DAFWAs current
capacity in relation to the elements tested.
Importantly APOLLO highlighted that access to adequately trained and experienced staff
would be a critical issue in a real time response. This is not a unique finding for DAFWA and
could be equally applied nationally. APOLLO confirmed that this resource would be stretched
in a real time incident. The resourcing of field teams and rosters would quickly deplete and
overwhelm staff within the initial stages of a response. It would be challenging and reinforces
the need for ongoing engagement, partnerships and arrangements with external agencies
and industry.
Overall, APOLLO in addition to the training initiatives implemented over the last 18 months,
has provided DAFWA with a significant platform on which to further build and further enhance
its emergency response capability, capacity and preparedness. Although the outcomes of
APOLLO have been very positive, DAFWA needs to ensure that the recommendations and
subsequent evaluation report findings are pursued to address capability gaps holistically.
By adopting a whole of department approach DAFWA will ensure that recommendations and
identified capability gaps are not considered in isolation. This approach will allow DAFWA to
prioritise and manage emergency response capacity and preparedness initiatives and focus
attention on the combination and integration of lessons learnt, directly from Exercise
APOLLO and indirectly from recommendations identified previously.
4 Note current RRT is being modified to a cross sectoral response capability with a new selection and response model.
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These considerations will be critical to enabling the capability required by DAFWA to meet
statutory hazard management requirements for biosecurity in Western Australia effectively
and efficiently.
