How to Use the COOP Template

This template provides a starting point to create a Continuity of Operations Plan (COOP) at the department or agency level. The sections in this template are recommended based on a review of plans across the country, and the template is designed to be modified by jurisdictions (state, local, and tribal) to meet their unique needs. Every agency has different needs and plans. Customization of this document is STRONGLY encouraged. This template is organized to facilitate use of the document during activation. It includes nine sections, described in the table below.

Each section contains guidance about the purpose of the section. Many sections also contain a list of questions to answer that facilitate content development. These instructions are identified by BOLD TEXT and are to be removed from the final document. In some cases, example language is provided in ITALICS TEXT to assist authors with drafting content and are to be updated or replaced in the final document. Additionally, brackets are used in the template backbone to indicate that the content needs to be updated by the author (e.g. version number, jurisdiction name). Finally, when the document is complete, the appropriate marking of sensitivity should be added to the footer preceding the version number (e.g. For Official Use Only, Government Sensitive Information).

Sections 1-6: Focus on plan development and detail assumptions, requirements, details related to the activities directed; these sections provide context for future updates

Section 7:   Focus on operations and is the primary reference during an activation

Section 8: Focus on maintenance of the plan and overall COOP program

Section 9: List of appendices

TABLE OF CONTENTS

1. Foreword
   • Contact Information
2. Statement of Confidentiality
3. Record of Changes
4. Record of Distribution
5. Introduction and Purpose
   • 5.1 Purpose and Objectives
   • 5.2 Applicability and Scope
   • 5.3 Supersedes
   • 5.4 Authorities and References
   • 5.5 Other Associated or Dependent Plans
6. Planning Scenarios and Assumptions
   • 6.1 Assumptions
   • 6.2 Planning Scenarios
   • 6.3 Classification of Emergencies
7. Concept of Operations
   • 7.1 Mission Essential Functions and Essential Supporting Activities
   • 7.2 Leadership Command and Control
   • 7.3 Personnel
   • 7.4 Alternate Work Site Requirements
   • 7.5 Administrative Requirements
   • 7.6 Communications
   • 7.7 Preparedness Activities
   • 7.8 Reconstitution Activities
8. Plan Management
   • 8.1 Planning Responsibilities
   • 8.2 Testing, Training, and Exercises
   • 8.3 Multi-Year Strategy
9. Appendices
   • 9.1 Electronic Storage of Documents
   • 9.2 Contracts and Agreements
   • 9.3 Major Projects and Plans
   • 9.4 Signed Work Orders, Statements of Work, etc.
   • 9.5 Procedures and Checklists
   • 9.6 Mission Essential Functions and Essential Supporting Activities
   • 9.7 Alternate Work Site Floor Plan
   • 9.8 Roster and Contact Information
   • 9.9 Key Vendors and Support Resources
   • 9.10 Delegations of Authority
   • 9.11 Memorandums of Understanding (MOUs)/Memorandums of Agreement (MOAs)
   • 9.12 Incident Communications Plan (ICS 205)
   • 9.13 Communications Resource Availability Worksheet (ICS 217)
   • 9.14 Acronyms and Glossary
   • 9.15 IPAWS / PSAP Checklist

1. Foreword

This section is typically used to insert a letter from the PSAP Director regarding the importance of continuity planning. This section also contains the necessary approval language and signature blocks designating this document as officially adopted for use.

Contact Information

The continuity manager should be identified here along with an alternate contact.

Please direct questions and suggestions regarding this plan to:

2. Statement of Confidentiality

This plan should be considered sensitive information and may be exempt from public disclosure laws. This section should include a description of any protections provided to prevent disclosure of the tactics and personnel information contained in the plan. PII can be removed. Check with your legal counsel to get further guidance on the appropriate document restrictions. The Department of Homeland Security (DHS) Federal Emergency Management Agency (FEMA) Continuity Plan Template for Non-Federal Agencies provides the following example language:

“This document along with subsidiary plans and supporting documents, contains confidential information and are for official use only as provided in [enter applicable regulation]. These documents are to be controlled, stored, handled, transmitted, distributed, and disposed of in accordance with the standard procedures followed for confidential information at [organization name] and are not to be released without prior approval of the [organization head title] to the public or other employees who do not have a valid “need to know.”

3. Record of Changes

It is standard practice to track the changes to the document over time. This allows future owners of the plan to see how it has evolved and prevents relearning old lessons. The initial release of the plan should be listed as Change Number 1 with “All” for the sections involved and “Initial Release” for the Summary of Changes.

All approved additions and/or modifications to this Continuity of Operations Plan will be recorded in this section. After a change is proposed and accepted, the person leading the change effort should document their name and title along with the date, sections impacted, and summary of the changes made. It is helpful, but not required, to include a brief rationale explaining the need for the change.

IMPORTANT: After recording the change details, the change owner must ensure the new version of the plan is distributed according to the distribution plan detailed in the next section.

4. Record of Distribution

Due to the importance of this plan, it should be stored both digitally and in hard copy in different locations. This section is meant to help the organization successfully track all distributed copies so they can be updated and replaced each time the document changes.

Each time this plan is revised, the Continuity Plan Manager will ensure the updated version is distributed according to the plan below. Each time a revision is published, all prior versions of the plan should be collected and destroyed.

All personnel are encouraged to read the plan and become familiar with how the plan works. To support this, the plan should be stored in a prominent location where all personnel are able to access it. Keeping personal copies and/or prior versions of the plan is prohibited unless authorized by the Continuity Plan Manager. Upon approval, the Continuity Plan Manager should amend the distribution plan accordingly.

5. Introduction and Purpose

This agency has essential functions that must be fulfilled even during times of crisis or emergency. It is not possible to predict what impacts an event or incident may have on this center and its ability to execute these essential functions. Planning for the operation of this center under these conditions can help to mitigate the impacts that may occur. Continuity of Operations Plans (COOP) ensure that center operations are quickly and efficiently resumed during an emergency.

5.1. Purpose and Objectives

This plan documents the authorities, processes, and assignment required to effectively maintain operations with limited disruption under adverse conditions. The objectives of this plan include:

• Assign authorities and responsibilities to agencies, organizations, and individuals for carrying out specific actions during a COOP event;
• Detail the methods and procedures to be used by designated personnel to assess emergencies and take appropriate actions to protect life, limit service disruption, and restore and maintain operations;
• Provide a process by which personnel can efficiently and effectively prevent, mitigate, prepare for, respond to, and recover from emergencies and disasters; and
• Identify the responsibilities of supporting agencies and partnering stakeholders and organizations during a COOP event.

5.2. Applicability and Scope

This section should identify whether the plan includes all PSAPs in a jurisdiction or just one location. It should also state that all departments are covered by the plan (or provide a strong justification as to why not). This section should also identify any circumstances where the plan should or should not be used (e.g. the applicability may be “All-Hazards” excluding pandemics).

This agency has mission essential functions that must be fulfilled even during times of crisis or emergency. It is not possible to predict what impacts an event or incident may have on this center and its ability to execute these essential functions. Planning for the operation of this center under these conditions can help to mitigate the impacts that may occur. Continuity of Operations Plans (COOP) ensure that center operations are quickly and efficiently resumed during an emergency.

• Planned or Anticipated Incidents: Incidents that can be planned for in advance such as a hurricane, a winter storm, extreme temperatures, major crowd events or VIP visits, etc., and;
• Immediate Response Incidents: such as a tornado, airplane crash, earthquake, fire, hazmat incident, active shooter, cyber incident, etc.

5.3. Supersedes

Over time the center will accumulate many versions of this document. This section is meant to ensure that all previously used policies, plans, etc. are identified. It is also possible that as the various policies and procedures evolve over time, conflicting directives may arise. This section helps to identify whether this document is the definitive source when conflicting directives are identified.

The provisions of this Continuity of Operations Plan (COOP) dated [date of latest version] supersedes all previous versions of the document. The elements of this plan are considered authoritative unless otherwise noted. Conflicting directives pertaining to continuity found outside of this document should be brought to the attention of the continuity manager or center director.

5.4. Authorities and References

There are likely federal, state, and local laws and regulations that impact the need for COOP as well as requirements the plan must satisfy. The plan may also be informed by a variety of best practices that are shared by trade organizations and other agencies. The authorities section includes the list of all laws, regulations, and policies that govern the document. The references section contains any third-party resources which helped to shape the plan.

Authorities

• The National Security Act of 1947, 50 U.S.C. 401, as amended.
• The Homeland Security Act of 2002, PL 107-296, enacted November 25, 2002.
• Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended (42 U.S.C. 5121, et seq.).
• Executive Order 12148, Federal Emergency Management, July 20, 1979, as amended.
• Presidential Policy Directive (PPD) 40, National Continuity Policy. National Response Framework, January 2008.
• Federal Continuity Directive 1 (FCD 1), Federal Executive Branch National Continuity Program and Requirements, 2017.
• Federal Continuity Directive 2 (FCD 2), Federal Executive Branch Mission Essential Function and Primary Mission Essential Function Identification and Submission Process, 2017.

References

• Comprehensive Preparedness Guide 101: Developing and Maintaining Emergency Operations Plans, Version 2.0, November 2010.
• Continuity Guidance Circular, February 2018.
• Title 44, CFR Part 2, Subpart A – Organization, Functions, and Delegations of Authority, October 1, 2005.
• Title 41, CFR 102-74.230 through 74.260, Occupant Emergency Program, revised July 1, 2005.
• Title 36, CFR Part 1223, Management of Vital Records, revised July 1, 2005.
• Wisconsin Administrative Code, Chapter DMA § 2.04 (8), effective July 1, 2022 (https://docs.legis.wisconsin.gov/code/admin_code/dma/2/04/8)

5.5. Other Associated or Dependent Plans

This section lists plans the COOP is dependent on or needs to align with, including other documents that are used in conjunction with the COOP. This may include plans such as Emergency Operations Plans (EOP), Information Technology (IT) Disaster Recovery Plans, building evacuation procedures, etc.

Cyber Incident Response Plan

[Describe the nature of the dependencies, e.g., “the cyber incident response plan calls for a decision regarding the need to activate the COOP to restore operations”]

Evacuation Plan

[Describe the nature of the association, e.g., “the COOP relies on the facility evacuation plan as the definitive process for egress during an emergency”]

Emergency Operations Plans (EOP)

[Describe the nature of the association, e.g., “the COOP relies on the Emergency Operations Plan to define the structure for an emergency response at the County level”]

Local Continuity of Government Plan (COG)

[Describe the nature of the association, e.g., “the COOP is part of a larger Continuity of Government Plan that defines how [x jurisdiction] will respond to a major emergency that disrupts the government’s ability to function”]

*Note: Memorandums of Understanding (MOUs) can be found in the Appendix – Section 9.11 MOUs/MOAs

6. Planning Scenarios and Assumptions

This section defines planning scenarios the team may use to assist in creating an effective plan. Work with local Emergency Management Agency (EMA) to identify local threats. These scenarios can become use cases later to test if the plan meets all expected needs. Examples of incidents that resulted in COOP actions within Wisconsin include: severe weather, including winter weather, flooding, and ice, cyber-attack, and civil unrest.

This section describes the planning scenarios and assumptions that were used to create the plan. They provide important boundaries for when the plan can and cannot be applied. These scenarios were selected by [describe the planning process].

6.1. Assumptions

It is not possible to document every detail of every contingency. Assumptions must be made to enable the development of the plan without it growing to the point that it becomes unusable. It is helpful to begin by including fundamental assumptions like “essential functions can be restored,” or “mutual aid support can be received.” Then, during the development process, the facilitator should pay special attention to additional assumptions being made by the workgroup as decisions are made. These items should also be documented in this section along with the context of the decisions they influenced.

The backup PSAP is _______ and calls are automatically forwarded. The backup PSAP will take our calls.

6.2. Planning Scenarios

Planning scenarios help to orient the team to ensure their thought processes are aligned both during plan development and implementation. This section describes the scenarios and articulates the typical situations that may result from the scenarios. Further, this section describes how center operations are impacted.
Connect with your local emergency manager when determining the planning scenarios.

Three useful scenarios include: 1) Ransomware or cyber-attack; 2) Natural disaster; and 3) Emergency evacuation of the facility.

6.3. Classification of Emergencies

The purpose of this section is to assist the decision-maker referenced in 7.2.4 with assessing the level of emergency and directing initial action. There are typically 4-5 categories of emergency named under column Threat Level. Threat Condition Criteria detail the information that indicates a Threat Level is reached and the Plan of Actions lists the immediate 3-4 steps the decision-maker should take.

7. Concept of Operations

This section describes the CONOPS for continuity including command and control, personnel management, alternate work site requirements, communications, MEFs, and phases of operation.

7.1. Mission Essential Functions and Essential Supporting Activities

MEFs are the core of the agency’s mission and cannot be halted for any reason. ESAs include the capabilities that are prerequisites for the MEFs and/or the plan itself. For example, MEFs may not require procurement but the execution of the COOP Plan will almost certainly require it.

7.1.1 Disruption Less than One Day

The following table includes the functions that must continue even if the disruption is less than one day.

7.1.2 Disruptions Greater than 1 Day and Less than 1 Week

The functions in this table must be performed given a disruption lasting longer than 1 day and less than 1 week. These items are typically ESAs, but it is possible MEFs may fall into this category.

7.1.3 Disruption Greater than 1 Week and Less than 1 Month

The functions in this table must be performed given a disruption lasting longer than 1 week and less than 1 month. In addition to MEFs and ESAs, this section may include other obligations and requirements, for example, legal reporting.

7.1.4 Assignment of Recovery Time Targets

The MEFs should be assigned recovery time targets. This is the maximum time that an outage can be tolerated. All dependencies of the MEF will inherit its RTT. This target will help to prioritize the actions taken when the plan is activated. For advanced plans, connect the Recovery Time to the Threat Levels defined in the Classification of Emergencies section 6.3.

7.1.5 Mission Essential Functions Table

7.2. Leadership Command and Control

7.2.1 Delegations of Authority

This section outlines delegations of authority relevant to the plan. There are limitations on who can make policy decisions. Some of these limitations are related to the division of roles and responsibilities. Other limitations are a matter of law and/or regulations. Pre-determined delegations of authority are designed to go into effect when normal operations are disrupted and allow decisions to be made by alternate individuals until regular operations are resumed.

Documented delegations of authority should include the authority itself, the circumstances when authority is passed, which responsibilities are being delegated, and those which are being withheld. If the authority being delegated is statutory, a copy of the formal delegation of authority should be added in an appendix in addition to the details added here.

NOTE: Be careful to think broadly about these positions. Finance and procurement personnel, IT staff, etc. are all equally important to the activation.

7.2.2 Orders of Succession

This section identifies successors to ensure there is no lapse in leadership or decision-making authority when incumbent personnel are incapable or unavailable to fulfill their duties. This section should include all the decision-making positions associated with the COOP as well as all those associated with fulfilling the mission essential functions/essential supporting activities.

NOTE: Be careful to think broadly about these positions. Finance and procurement personnel, IT staff, etc. are all equally important to the activation. It is suggested to have two alternates for all mission essential functions/essential supporting activities. These alternates will be in charge of decision making for their position in the event the incumbent person is not available.

7.2.3 Critical Information Requirements

This section documents key decisions to be made, the frequency, and the critical information needed to make a sound choice. Common decisions may include: personnel accountability, status of critical systems, and situation updates.

As these items are documented, be sure to include the following details:

• Decision/information Item
• Specific data requirements
• Responsible person or team
• Deliverables depending on information
• Timing and frequency of collection
• Authorized distribution

7.2.4 Decision-Making Process and Initial Actions

This section describes personnel who are authorized to evaluate a situation and make the determination as to the level of emergency that exists and whether the COOP Plan should be activated in part or in its entirety. The plan should begin with guidance about how the authorized person should make the decision. Two critical decisions that should be referenced here are the AWS location (refer to 7.4.1) and hours of operation.

7.2.4.1 Relocation

This section should include the details regarding the process of leaving the facility to some other destination. The plan should direct the Advance Team (Section 7.3.1/7.3.2) to depart for the AWS with the rest of the section focused on the transfer of operational control. The staff will likely want to use their POVs to travel to the AWS. This is not always possible, and it may be necessary to engage with a private carrier to transport people and equipment to the AWS. This process should begin with the steps to take to transfer operational control (e.g., routing calls to an alternate PSAP, securing the facility, etc.). The next part of the section should include the mechanism for maintaining accountability of all personnel as they are in transit to their designated AWS. This section will conclude with the steps to take as the staff arrive at the AWS.

This may include:

• Check-in process
• Seating assignments
• Retrieval of the pre-positioned equipment
• Monitoring the status of personnel still in transit
• Deploying the critical technologies needed to re-establish the MEFs
• Sending out updated messages to the staff

7.2.4.2 Devolution

This section may not apply to all communities. Devolution is a special case of delegation of authority that occurs when the agency is impacted to the point that it is no longer viable. The devolution statement should begin with the decision criteria (e.g., circumstances that will prevent the restoration of many, if not all, of the mission essential functions) and decision authority. This section should also include the successor agency that will assume these responsibilities should this occur.

IMPORTANT: The laws regarding devolution may limit the circumstances under which this decision can be made. It may also limit options for successor agencies.

In the event [Agency Name] is overcome by the loss of the primary work site and all alternate work sites and/or 75% or more of personnel are unable to perform their essential duties described in this plan, the need for devolution may arise. Devolution may occur upon the unilateral determination by [Role Name / Next Higher Authority] or based upon the recommendation of the most senior surviving official as determined by the Orders of Succession in Section 7.2.2 of this plan.

Effective immediately upon this determination, all authorities and essential functions shall be transferred to [Successor Agency]. The Successor Agency should be part of the conversation. The members of the [Name of Advance Team] and the remaining senior officials will assist the successor agency assume the performance of the organization’s essential functions.

7.3. Personnel

7.3.1 Key Personnel, Individual Roles, and Team Assignments

This section identifies the key personnel that will lead the operation while it is ongoing. As with orders of succession, it is important to name the roles and not the person. If you don’t have the staff to assign to the roles, switch the approach based on size of PSAP staff. Plan to be flexible in general.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

7.3.2 Roles and Responsibilities

The purpose of this section is to document the responsibilities and task assignments for each role across all four phases of the COOP life cycle.

7.3.3. Staff Augmentation and Mutual Aid

There is a strong possibility that whatever incident causes the activation will also personally impact a portion of staff. It may be necessary to find ways to augment personnel and/or reduce services. This section describes the roles that can be filled by non-center personnel along with any required qualifications. This section should also provide details regarding potential sources of temporary personnel [e.g., state, or regional TERT (Telecommunicator Emergency Response Teams) teams filling in for telecommunicators].

7.3.4 Mental Health and Employee Support

This section details policies and procedures regarding how personnel can access real-time mental health support, as well as any other support services (e.g., schedule flexibility, transportation, dependent care, etc.) available to personnel to assist them with managing the personal impact of the incident that necessitated COOP.

7.4 Alternate Work Site Requirements

7.4.1 Location

This section lists the address and point of contact for each site. It’s helpful to document the GPS or What-3-Words location (from the same-named app) along with directions and known points of reference. Additionally, for each location, including virtual operations, declare the type of site (hot, warm, cold), identify the capacity of the site, any equipment, or systems already present, and any MOU or contract details (especially date of execution and duration of agreement). It may not be possible for all MEFs to be performed from the site. If there are any potential exclusions, include the functions that are not possible and the rationale as to why. This section should also be used to identify any features of the facility that help with resiliency. For example, is there a generator and if so, what is its capacity, fuel source, run time, and support provider? Telework should be documented as a site if the option exists. Include details regarding which personnel will telework along with any specific requirements that must be met for this to remain a viable option.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

7.4.2 Space Configuration

This section includes a reference to the floor plans which can be described or drawn here and/or placed in Appendix 9.7 – Alternate Work Site Floor Plan and includes details regarding how the space will be used when occupied. If rooms are to be reserved for offices or meeting space, be sure to annotate the intended purpose. It is also important to annotate any rooms that are “off limits.”

7.4.3 Communications and Technology Requirements

The facilities may have existing technology infrastructure that can be used to reduce the level of effort to transition into the space. These capabilities should be documented along with points-of-contact if there are questions. The sites may also have infrastructure that can be enabled during an emergency (e.g., phone lines). These capabilities along with a plan to activate the service should be documented. The plan may call for pre-staged equipment. If the location will house a cache of pre-staged equipment, document the location where the items can be found.

7.4.3.1 Mission Critical Systems

This section details the systems required to fulfill each MEF. For each MEF, the essential records, systems, applications, and equipment should be listed. This section may refer to existing disaster recovery plans for individual systems that are maintained by outside vendors. For example, for the MEF “answer 9-1-1 calls” the essential equipment may include the call handling equipment which has an RTT of 6 hours and requires the SIP trunk to the carrier, the PBX, and the call processing servers X, Y, and Z. This MEF also requires GIS which has an RTT of 4 hours and requires access to the enterprise network and the GIS server cluster.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

7.4.3.2 Call Routing

This section should describe a clear 9-1-1 call routing plan for significant disruption and failure scenarios. It is essential that the receiving PSAP(s) are aware of and acknowledge their role in maintaining 9-1-1 services for the duration of the COOP activation. If MOUs/MOAs exist, include them in Appendix 9.11. For PSAPs implementing NextGen9-1-1 services or operating on a NextGen9-1-1 system, alternate and abandonment routes should be identified and pre-configured with the Emergency Services IP-based Network (ESInet) provider.”

7.4.3.3 Vital Records and Database

This section details the vital records and databases that are required to complete the MEFs and ESAs. The essential records, files, or databases should be listed individually. For each item, include the MEF(s) it supports, its location (physically or where on the network it can be found), whether it is stored electronically or as a hardcopy, if it has been prepositioned, if it will need to be hand carried to the AWS, and the frequency it is updated. This section of the plan may include information regarding off-site storage of records. It should also include details regarding the off-site storage of server back-ups should it be necessary to restore the systems from a previous snapshot in time. It should also include the process by which records that must be moved during the relocation process shall be relocated.

7.4.4 Transportation, Food, and Lodging

This section details policies and procedures regarding how personnel are transported, housed, and fed during an activation. Hygiene, housing, food, and contact with their families are all important considerations for team morale when working in high-stress conditions. These functions can be accomplished by entering into agreements with other agencies or non-profit organizations. It may be necessary to create agreements with pre-identified private vendors to provide support on very short notice during emergencies.

7.4.5 Site Security and Logistics

This section describes the physical security and logistics capabilities of the alternate site(s) including perimeter fences, secure parking, CCTV, outdoor lighting, controlled access, on-site security, ability to access the building with large vehicles (e.g., semi-trailer, large military vehicles), loading docks, etc. If access for large vehicles is not possible (e.g., low hanging power lines, narrow access routes, etc.), include details regarding why the site is unsuitable. Also include estimates for the largest vehicle size that might be able to get to the site. Criminal Justice Information Services (CJIS) requirements should be considered.

Key questions to consider:

• Are there security concerns with the alternate site and do they differ depending on the planning scenario?
• What constitutes a secure site i.e., use dual authentication, locked room, etc.?

7.5 Administrative Requirements

7.5.1 Financial Management

The first part of this section should cover the location of standard operating procedures and other documents that detail the abilities and limitations of emergency procurement. The second part of this section should include the process which all personnel must follow to track expenses during the activation.

7.5.2 Continuity of Meetings

This section details how legal requirements related to public meetings will be met during activation. If the impact of the event will be short, it may be possible to simply reschedule for a different day and time. If the impact continues for an extended period, it may be necessary to have a plan for how to conduct this meeting and how to notify the public of the change.

7.6 Communications

7.6.1 Alerts and Notifications

This section describes the notifications sent to alert personnel of activation and should align with the following sections, Management and Employee Communications 7.6.3 and 7.6.4. This will be more detailed for state/regional PSAPs but less detailed for small PSAPs.

7.6.2 Primary, Alternate, Contingency and Emergency (PACE) Plan

This section describes how critical information will reach key decision makers and how critical notification pathways will be maintained during a disruption of communications. PACE is used to identify alternatives for communicating and sharing information in a manner of first, second, third, and final options. If special devices are required (e.g., satellite phones), the plan should identify how these are obtained.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

7.6.3 Management Communications

This section describes how senior leaders will remain in contact with each other and may also include how the leadership team will remain in contact with other senior officials including elected officials, city or county administrators, emergency management coordinators, etc.

7.6.4 Employee Communications

This section includes the plan for how information will be passed from the management team to employees. The plan should identify whether the mechanism supports confirmations of receipt of message, information security, and reliability. When messages are passed, the plan should identify the preferred mechanism and whether multiple paths should be used simultaneously.

Common mechanisms include:

• Employee call list/Phone Tree
• Alert messaging services / Reverse 9-1-1
• Intranet announcements
• Email announcements
• Voicemail/ Interactive Voice Response (IVR) announcements
• Hotlines

7.6.5 User Communications

This section includes the plan for how information will be passed from the management team to PSAP users (e.g., police, fire, EMS departments). The plan should identify whether the mechanism supports confirmations of receipt of message, information security, and reliability. When messages are passed, the plan should identify the preferred mechanism and whether multiple paths should be used simultaneously.

7.6.6 Vendor Communications

This section will include details regarding what information can be shared with vendors, any requirements for non-disclosure agreements, and the impacts of vendor communications on emergency procurement.

7.6.7 Media Communications

This section of the COOP Plan includes two parts. The primary purpose for this section is to provide guidance to the Public Information Officer (PIO) regarding policies and procedures for the public release of information. The plan should also identify which media outlets to engage and when. The second part of this section should include guidelines for the staff on how to respond to inquiries from the media. They should be given guidance on how to redirect inquiries to the PIO. It may also include guidance regarding the disclosure of information through personal social media.

7.7 Preparedness Activities

7.7.1 Preparation

This section describes important steps to take in preparation for a COOP event, including resource inventory and preventative maintenance.

7.7.2 Prepositioned Resources

This section describes what supplies and equipment should be maintained in prepositioned caches. This may include laptops, printers, software, office supplies, MREs, water, and PPE. The types and quantities of items should be documented including the location of where the items are stored and when they expire.

7.7.3 Drive Away Kits

This section describes the contents of the drive away kit. The drive away kits are meant to enable the Advance Team to quickly activate and transition the operation to the alternate work site (AWS).

7.7.4 Preventative Maintenance

This section describes all items that need regular maintenance and inspection. The prepositioned equipment and drive away kits all contain items that need to be checked for serviceability on a regular basis. Cached laptops, networking equipment, radios, and other electronic equipment will need to be updated periodically and tested to ensure they still work. The maintenance tasks should be assigned an owner and a frequency for inspection.

7.7.5 Personal and Family Preparedness

This section describes the steps individuals are expected to take to prepare themselves and their families for an activation. Ready Wisconsin is a good source of information regarding personal and family preparedness: https://readywisconsin.wi.gov/.

7.8 Reconstitution Activities

This section details the steps the must be taken to reconstitute operations including decision criteria for returning to the original operation, the process for reoccupying the site, and documenting lessons-learned and remedial actions needed to improve the plan.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

7.8.1 Decision-Making

This section parallels 7.2.4. This section describes personnel who are authorized to evaluate a situation and make the determination as to the level of emergency that exists and whether the COOP plan should be de-activated in part or in its entirety.

7.8.2 Relocation Return Process

This section parallels 7.2.4.1. and describes the process of leaving the AWS and returning to the primary facility.

7.8.3 After Action Report (AAR) and Remedial Action Plan

This section identifies the position responsible for facilitating the After Action Report (AAR) and ensuring the action items are reviewed and implemented. This section should also include information about how long after an incident the AAR is to be completed, who participates, and who is accountable for the remedial action plan that follows the AAR.

8. Plan Management

This section describes how the plan is maintained, by whom, and what training and exercise program is required to sustain readiness.

8.1. Planning Responsibilities

This section of the plan identifies the position responsible for the maintenance of the plans and procedures. The table below details the responsibilities associated with being responsible for the maintenance of the plan.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

8.2. Testing, Training, and Exercises

This section of the plan identifies the position responsible for the training and exercises required to support the plan. The table below details the responsibilities associated with being responsible for the training and exercise program.

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

8.3. Multi-Year Strategy

This section defines the milestones for COOP over a period of time, typically three to five years. COOP plans and programs can be resource intensive to stand-up and maintain, and so it is beneficial to consider building the program iteratively.

9. Appendices

This section contains the Appendices associated with this plan.

• 9.1. Electronic Storage of Documents
• 9.2. Contracts and Agreements [With procurement vendors, etc.]
• 9.3 Major Projects and Plans
• 9.4 Signed Work Orders, Statements of Work, etc.
• 9.5 Procedures and Checklists
• 9.6 Mission Essentials Functions and Essentials Supporting Activities
• 9.7 Alternate Work Site Floor Plan
• 9.8 Roster and Contact Information
  • Emergency Contact Information
  • Key Leadership Contact Information
  • Stakeholder Contact Information
  • Media Outlets

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

• 9.9 Key Vendors and Support Resources [Information re: outside agency support]
• 9.10 Delegations of Authority
• 9.11 Memorandums of Understanding (MOUs)/Memorandums of Agreement (MOAs) [Agreements between/with other agencies]
  • County to County: https://oec.wi.gov/wp-content/library/2023/SAMPLE%20County-County%20PSAP%20back%20up%20MOU.pdf
  • City to County: https://oec.wi.gov/wp-content/library/2023/SAMPLE%20County-City%20PSAP%20back%20up%20MOU.pdf
• 9.12 Incident Communications Plan (ICS 205) [to be accessed here]

*NOTE: Details in this section are required for applicant eligibility under the Chapter DMA 2 PSAP Grant Program

• 9.13 Communications Resource Availability Worksheet (ICS 217) [to be accessed here]
• 9.14 Acronyms and Glossary
  • 9.14.1 Acronyms:
    • AAR – After Action Report
    • AWS – Alternate Work Site
    • CCTV- Closed Circuit Television
    • CISA PTS – Cybersecurity & Infrastructure Security Agency Priority Telecommunications Services
    • CJIS – Criminal Justice Information Services
    • COG – Continuity of Government
    • CONOPS – Concept of Operations
    • COOP – Continuity of Operations Plan
    • DHS – Department of Homeland Security
    • EMS – Emergency Medical Services
    • EOP – Emergency Operations Plan
    • ESA – Essential Supporting Activities
    • ETA – Estimated Time of Arrival
    • FEMA – Federal Emergency Management Agency
    • FOIA – Freedom of Information Act
    • FOUO – For Official Use Only
    • GPS – Global Positioning System
    • HVAC – Heating Ventilation and Air Conditioning
    • IPAWS – Integrated Public Alert and Warning System
    • IVR Announcement – Interactive Voice Response Announcement
    • LMR – Land Mobile Radio
    • MEF – Mission Essential Function
    • MOA – Memorandum of Agreement
    • MOU – Memorandum of Understanding
    • MS Teams – Microsoft Teams
    • NAWAS – National Warning System
    • NCSWIC – National Council of Statewide Interoperability Coordinators
    • PACE – Primary Alternate Contingency Emergency
    • PII – Personally Identifiable Information
    • PIO – Public Information Officer
    • POV – Personal Operating Vehicle
    • PSAP – Public Safety Answering Point
    • RTT – Recovery Target Time
    • SCIP – Statewide Communications Interoperability Plan
    • SOP – Standard Operating Procedures
    • TERT – Telecommunicator Emergency Response Teams
    • VPN – Virtual Private Network
    • WEM – Wisconsin Emergency Management
  • 9.14.2 Glossary
    • Continuity of Government (COG): refers to coordinated efforts within the different branches of government to ensure essential functions continue to be performed before, during, and after an emergency or threat. COG preserves the statutory and constitutional authority of elected officials.
    • Continuity of Operations (COOP): refers to the efforts individual organizations undertake to ensure essential functions continue during disruptions of typical operations.
    • Disruption vs. Reduction:
      • Disruption: interruption of service impacting operational capabilities
      • Reduction: limited or scaled back operational capabilities
    • Hot/Warm/Cold:
      • Hot: fully equipped with working utilities. Requires the shortest start-up period as they are usually dedicated spaces.Warm: partially equipped with some systems/equipment in place. Requires a moderate start-up period.
      • Cold: not equipped and utilities not working. Requires the longest start-up time as they are usually spaces used for other routine purposes (such as conference rooms, classrooms, etc.)
• 9.15 Appendix 9.15 – IPAWS / PSAP Checklist

The following are a list of considerations for PSAPs that serve as IPAWS Alert Originators. The information contained here relates to multiple different sections of the COOP Plan and should help guide Alert Originator counties in capturing IPAWS related information as a part of their COOP planning process. Each section number refers to the correlating portion of the plan where the function of issuing IPAWS alerts should be considered.

• 7.1 Mission Essential Functions (MEF) and Essential Supporting Activities (ESA)
  • Any Alert Originator County should consider IPAWS notifications a mission essential function and ensure their COOP plan addresses all the legal requirements associated with serving as an Alert Originator.
    • As an Alert Originator County, what do you need to consider during the planning process to ensure you are able to issue IPAWS notifications during any disruption of service?
    • Who needs to be involved in this part of the COOP process?
  • If your County has nuclear power plant response, how will you maintain required alerting capabilities?
• 7.2.1 Delegation of Authority
  • Anyone who sends or drafts IPAWS messages must take Integrated Public Alert and Warning System (IPAWS) for Alert Originators (ICS 247), which can be found here: FEMA – Emergency Management Institute (EMI) Course | IS-247.B: Integrated Public Alert and Warning System (IPAWS) for Alert Originators
    • Are these mass notifications related duties accounted for in your chain of delegation as official legal responsibilities?
      • Do those identified as part of this legal chain of delegation have access to the systems they need to in order to fulfill these legal obligations?
        • I.e.: If your center’s usual cadre of message developers and senders are unavailable, who else can send these messages?
• 7.2.4 Decision-Making Process and Initial Actions
  • What are the trigger points for requesting that the WEM State Duty Officer take over alerting?
    • Consider having State Watch Desk take the duty.
• 7.2.4.1 Relocation
  • How will you notify the State Watch Desk that an IPAWS duties handoff is necessary?
  • How will you then take back IPAWS duties from the State Watch Desk once reconstitution is possible?

• 7.2.4.2 Devolution
  • Is the center assuming responsibility during devolution able to take over IPAWS duties? If not, notify the State Watch Desk to assume duty. Describe this process.
• 7.4.1 Location
  • Does your PSAP have NAWA Scapability? If so, how will you notify other PSAPs of your COOP Plan activation.
    • Note: it is a requirement that you notify your neighbors without NAWAS capabilities of your COOP Plan activation.
• 7.4.3 Communications and Technology Requirements
  • Can personnel access IPAWS software away from the main PSAP site?
    • I.e. During a COOP activation, can the required teams/personnel access the IPAWS platform through all systems, such as through phones, laptops, etc.? – Capture this information in the 7.4.3.1 Mission Critical Systems Table
  • Consider installing a NAWAS phone circuit at the AWS location.