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COMPLETE EXERCISE WALKTHROUGH

πŸš‘ Mass Casualty Incident with Surge

A structural collapse at a community event has generated a mass casualty incident. Hospitals are surging and the incident is drawing national media attention.

FoundationalAll-Hazards Base DeckPHMMCFMOSSPIW

This page walks through the full scenario as written, the action cards and injects a group can use, a sample run-through of how one session played out, and a complete sample HSEEP package (Exercise Plan, Situation Manual, After-Action Report, and Improvement Plan) produced from that session β€” exactly the kind of documentation your exercise produces automatically.

Scenario Overview

Initial Conditions

  • β€’Grandstand collapse at county fairgrounds β€” est. 200 injuries, 15 critical
  • β€’All 3 regional hospitals within 20 minutes of diversion
  • β€’Helicopter LZ established but weather ceiling dropping
  • β€’4 news helicopters over scene
  • β€’Families converging on scene β€” no reunification site

Key Stressors

  • β€’Patient distribution decisions racing against closing hospital capacity
  • β€’Critical injury count raising the risk of a fatality management operation
  • β€’Scene narrative being shaped by media faster than official information can be verified
  • β€’Family search for loved ones colliding with scene access control
  • β€’Air evacuation window closing as the weather ceiling drops

Training Objectives

  1. Practice activation of medical surge protocols across multiple receiving hospitals
  2. Exercise coordination of mass care services for family reunification
  3. Practice activation of mass fatality management protocols
  4. Practice coordination of on-scene security amid family and media convergence
  5. Practice coordinated public messaging through a Joint Information Center

Incident Map Markers

These locations are plotted on the Incident Map automatically when the exercise begins.

  • πŸ“Grandstand collapse
  • 🚁Helicopter landing zone

What It Looks Like

Every scenario, action card, and inject is a hex tile on the response board. Here's the incident card for this scenario β€” the tile that sits at the center of the board β€” alongside one of the action cards players place around it.

πŸš‘
Mass Casualty Incident with Surge

The Incident Card

HAZHazard Mitigation & Operational Response

Activate Mass Casualty Incident (MCI) Protocol

Formally activate MCI protocol: START/SALT triage at scene, Casualty Collection Point (CCP) establishment, hospital pre-notification for incoming patient surge, medical branch director assignment, and patient tracking initiation.

ICS 208ESF-8

An Action Card (Hazard Response)


Action Cards

Players respond to the scenario by placing action cards onto the response board, one per response category arm: Hazard Response, Resources, Communications, Public Information, and Leadership. Each card includes a discussion prompt that drives the group's conversation. Below are the Public Health response cards relevant to this scenario.

Hazard Response

Activate Mass Casualty Incident (MCI) Protocol

Formally activate MCI protocol: START/SALT triage at scene, Casualty Collection Point (CCP) establishment, hospital pre-notification for incoming patient surge, medical branch director assignment, and patient tracking initiation.

β€œAt what patient count does your MCI protocol trigger β€” and are you confident your local hospitals can absorb the patients before mutual aid can arrive?”

ICS 208OperationsESF-8
Activate Alternate Care Site

Open an Alternate Care Site (ACS) to decompress hospital emergency departments. Identify facility, activate healthcare staffing, establish patient intake screening, and coordinate medical supply logistics.

β€œWhere is your pre-designated ACS, and does it have the medical staffing agreements and supply cache in place to activate within 12 hours?”

ICS 215OperationsESF-8
Establish Isolation and Infection Control Protocols

For communicable disease events: establish isolation protocols for patients, PPE requirements for responders and healthcare workers, contact tracing initiation, and coordination with infection control specialists.

β€œWhich first responders and healthcare workers have already been exposed to this pathogen β€” and what is your protocol for their monitoring, isolation, and continued operational role?”

ICS 208OperationsESF-8
Activate Fatality Management Operations

Coordinate with the Medical Examiner/Coroner on mass fatality operations: scene management, remains recovery priorities, victim identification process, family notification coordination, and temporary storage.

β€œAt what point does the volume of fatalities exceed your Medical Examiner's capacity β€” and what is the mutual aid or federal support mechanism for mass fatality events?”

ICS 201OperationsESF-8

Resources

Request Strategic National Stockpile Resources

Submit a request through the state for Strategic National Stockpile (SNS) assets: pharmaceuticals, vaccines, medical countermeasures, ventilators, or personal protective equipment. Lead time is critical β€” request early.

β€œWhat medical countermeasures do you need in the next 48 hours that are not in your local cache β€” and have you submitted the state request for SNS already?”

NIMS 17LogisticsESF-8
Coordinate Regional Hospital Surge Capacity

Work with the Hospital Incident Command System (HICS) and regional Healthcare Coalition to implement surge protocols: patient diversion management, discharge acceleration, cancellation of elective procedures, and staffing surge.

β€œWhat is the actual surge capacity of your regional hospital system right now β€” and which hospital will hit maximum capacity first if this incident continues at current rates?”

ICS 215LogisticsESF-8
Activate Medical Needs Shelter Operations

Open and staff a Special Needs or Medical Needs Shelter for residents with medical conditions requiring support beyond a general population shelter. Coordinate with EMS, DOH, and home health agencies for patient intake.

β€œDo you have the nursing staff committed and the medical supply pre-positioned at your SpNS β€” and what happens when a shelter resident's medical needs exceed SpNS capability?”

ICS 215LogisticsESF-8

Communications

Activate Disease Surveillance and Case Reporting

Establish an expedited disease surveillance and case reporting system. Brief healthcare providers on the case definition, required reporting timeline, and the reporting mechanism. Assign an epidemiologist to data management.

β€œHow long does it take for a clinician who sees a case to report it to your health department β€” and how does that delay affect your ability to understand the scale of this event?”

NIMS 13OperationsESF-8
Establish Public Health Information Hotline

Stand up a dedicated public health hotline staffed by trained personnel who can answer questions about exposure, symptoms, treatment access, and protective measures. Provide consistent, accurate answers.

β€œWhat happens when your public health hotline receives more calls than it can handle β€” and how do you direct overflow callers to accurate information without them turning to social media?”

NIMS 16PIOESF-15
Brief Healthcare Network on Clinical Protocols

Deliver a structured clinical briefing to all hospitals, urgent care centers, and primary care providers in the jurisdiction: case definition, symptoms, diagnosis, treatment protocol, isolation requirements, and reporting.

β€œHow do you reach private practice physicians and urgent care clinics that are not in your hospital system coordination network β€” and why does that gap matter for case identification?”

NIMS 13OperationsESF-8

Public Information

Issue Public Health Advisory and Protective Guidance

Issue a formal Public Health Advisory with specific, actionable guidance: symptoms to watch for, when to seek care, where to go, and what protective actions to take. Use plain language and multiple languages.

β€œWhat is the single most important action you want the public to take right now β€” and is your current public communication making that action clear and easy to execute?”

NIMS 16PIOESF-15
Activate Mass Vaccination or Treatment Site

Open a Point of Dispensing (POD) or mass vaccination site. Coordinate with pharmacy partners, volunteer healthcare professionals, and security. Set up patient flow to minimize wait times and exposure.

β€œHow many people can your POD vaccinate or treat per hour β€” and what is the realistic throughput over a 12-hour operational day given your current staffing?”

NIMS 18OperationsESF-8
Counter Public Health Misinformation

Monitor and rapidly correct dangerous misinformation about this public health event: false treatments, incorrect transmission routes, unverified case counts. Partner with trusted community voices.

β€œWhat is the most dangerous piece of public health misinformation currently spreading in your community β€” and who is the most credible messenger to correct it?”

NIMS 16PIOESF-15

Leadership

Activate Public Health Emergency Authority

Declare a Public Health Emergency at the appropriate level (local, state). Understand what legal authorities this activates: quarantine, isolation enforcement, expanded scope of practice, emergency procurement.

β€œWhich public health emergency powers does your jurisdiction actually have β€” and which ones require a state or federal declaration before they become available to you?”

NIMS 17Emergency ManagerESF-8
Coordinate with State Health Officer

Establish direct coordination with the State Health Officer and state health department for resource support, regulatory guidance, media coordination, and escalation to federal partners (CDC, HHS).

β€œWhat do you need from the State Health Officer that you cannot get through normal channels β€” and have you made that specific ask directly to their office?”

NIMS 17Emergency ManagerESF-8

Injects

Injects are mid-exercise complications the facilitator (or any player) can trigger with the ⚑ Inject button β€” up to 3 per exercise. These 5 injects are written specifically for this scenario.

βš™οΈCritical Equipment Failure

A key piece of operational equipment β€” a pumper, generator, or mobile command vehicle β€” has failed mid-operation. No immediate replacement is available through normal channels.

Impact: Capability gap in active operations; tasks dependent on the equipment must pause or be re-routed

  • β€œWhat is your contingency for critical equipment failure during extended operations β€” who do you call first?”
  • β€œHow do you communicate this capability gap to field supervisors without creating alarm or unsafe workarounds?”
πŸš—Mass Self-Evacuation Surge

Several thousand residents with no evacuation order have self-evacuated and are converging on shelters. Traffic is gridlocked and shelters were not sized for this volume.

Impact: Shelter capacity overwhelmed; evacuation routes gridlocked; unplanned resource demand across multiple sites

  • β€œHow do you message the public to discourage premature self-evacuation without dismissing a real threat?”
  • β€œWhat is your protocol when a shelter reaches capacity β€” where do additional evacuees go?”
πŸ™‹Spontaneous Volunteer Surge

Over 200 volunteers have shown up unannounced at the staging area. Some are trained, most are not. They are creating access control problems and a potential safety liability.

Impact: Logistics congestion at staging; safety and liability exposure; significant potential resource being wasted

  • β€œWhere is your Volunteer Reception Center, and is it activated and staffed right now?”
  • β€œHow do you quickly assess volunteer skills and assign or redirect them before they create additional problems?”
πŸ›‘οΈShelter Conflict & Security Incident

A physical altercation between shelter residents has injured two people and the shelter manager is requesting law enforcement and asking whether to close the shelter.

Impact: Shelter security compromised; residents feeling unsafe; potential shelter closure displacing hundreds

  • β€œWhat is your protocol for law enforcement response at a mass care shelter, and how do you preserve the shelter's welcoming environment?”
  • β€œUnder what conditions would you close or relocate a shelter, and where do those residents go?”
πŸ₯Critical Hospital at Capacity

The regional trauma center has declared a diversion β€” no incoming patients. Remaining hospitals are filling. EMS is holding patients in the field with no available receiving facility.

Impact: EMS system at risk of gridlock; patients in field without definitive care; medical operations plan must be revised

  • β€œWhat is your pre-established protocol when all area hospitals are on diversion?”
  • β€œWho coordinates the decision to open an alternate care site and how quickly can it be made functional?”

Sample Run-Through

The following is a hypothetical narrative of one group's session with this scenario β€” it sets up the sample HSEEP package below, which documents this run-through as if it were a real completed exercise.

Setup

A group of four β€” an Incident Commander, an Operations Section Chief, a Public Information Officer, and a Logistics Section Chief / EOC Liaison β€” selects the All-Hazards Base Deck and the β€œMass Casualty Incident with Surge” scenario, with the team experience level set to Intermediate. The scenario is revealed: a grandstand has collapsed at the county fairgrounds during a public event, with an estimated 200 injuries and 15 critical patients. All three regional hospitals are within 20 minutes of diversion, a helicopter landing zone has been established but the weather ceiling is dropping, four news helicopters are already overhead, and families are converging on the scene with no reunification site established.

First Round

The group's first placements focus on getting ahead of the medical surge. On the Hazard Response arm they place Activate Mass Casualty Incident (MCI) Protocol β€” triggering a discussion about where their START/SALT triage threshold actually kicks in β€” followed by Activate Fatality Management Operations, since 15 critical patients makes fatalities a near-certainty. On Resources they place Coordinate Regional Hospital Surge Capacity, debating which of the three hospitals will hit capacity first. Communications gets Establish Public Health Information Hotline, Public Information gets Issue Public Health Advisory and Protective Guidance, and Leadership places Activate Public Health Emergency Authority to unlock expanded procurement and mutual aid authorities early.

⚑ Inject 1 β€” Mass Self-Evacuation Surge

About 15 minutes in, the facilitator triggers Mass Self-Evacuation Surge: families with no evacuation order are self-evacuating toward shelters that weren't sized for this volume. The group realizes they never addressed the reunification gap called out in the initial conditions β€” there is no reunification site, and families are converging directly on the incident scene, interfering with operations. In response they place Activate Medical Needs Shelter Operations on Resources, and the discussion surfaces a real gap: the jurisdiction has no pre-designated reunification site for an event of this type.

⚑ Inject 2 β€” Critical Hospital at Capacity

Around the 30-minute mark, Critical Hospital at Capacity hits: the regional trauma center declares diversion entirely, and EMS starts holding patients in the field. The group places Activate Alternate Care Site on Hazard Response and debates which facility could realistically stand up an ACS within a few hours β€” landing on a nearby high school gymnasium identified in their EOP, but acknowledging the medical staffing agreement to support it has never actually been signed.

⚑ Inject 3 β€” Shelter Conflict & Security Incident

Near the 50-minute mark, Shelter Conflict & Security Incident is triggered: a physical altercation at the medical needs shelter has injured two people, and the shelter manager is asking whether to close the shelter entirely. The group has no documented protocol for law enforcement response inside a shelter and spends several minutes debating it live β€” ultimately deciding to request a deputy be posted at the shelter rather than close it, but flagging this as a clear gap for the debrief.

Wrap-Up

With about 15 minutes remaining, the group clicks Finish & AAR. Each participant completes an individual self-assessment, and the AI debrief generates a structured summary highlighting what went well, the three gaps surfaced during the injects, and NIMS-aligned recommendations. The sample HSEEP package below documents this session end to end.

The board at the end of this session

This is the live response board component β€” drag to pan, scroll to zoom.

Scroll to zoom Β· Drag to pan Β· Click placed cards to view
HAZRESCOMPUBLEAMass CasualtyIncident withSurgeActivate MassCasualtyIncident (MCI)ActivateFatalityManagementActivateAlternate CareSiteCoordinateRegionalHospital SurgeActivate MedicalNeeds ShelterOperationsResources &LogisticsManagementEstablish PublicHealthInformationCommunication &InformationManagementCommunication &InformationManagementIssue PublicHealth Advisoryand ProtectivePublic Engagement& SafetyPublic Engagement& SafetyActivate PublicHealth EmergencyAuthorityLeadership &CoordinationLeadership &CoordinationMassSelf-EvacuationSurgeCriticalHospital atCapacityShelter Conflict& SecurityIncident

Sample AAR Screen

The moment the group clicks Finish & AAR, this screen appears β€” a record of everything placed on the board plus an AI-generated debrief, generated automatically from the session above.

After-Action Review

Board Summary

Hazard Response(3)
  • Activate MCI Protocol
  • Activate Fatality Management Operations
  • Activate Alternate Care Site
Resources(2)
  • Coordinate Regional Hospital Surge Capacity
  • Activate Medical Needs Shelter Operations
Communications(1)
  • Establish Public Health Information Hotline
Public Information(1)
  • Issue Public Health Advisory and Protective Guidance
Leadership(1)
  • Activate Public Health Emergency Authority

Inject Log

  • πŸƒMass Self-Evacuation SurgeRound 1 Β· ~15 min
  • πŸ₯Critical Hospital at CapacityRound 2 Β· ~30 min
  • πŸš”Shelter Conflict & Security IncidentRound 3 Β· ~50 min

AI Debrief

Summary

The group activated MCI and fatality management protocols immediately and secured expanded emergency authority early. Each of the three injects surfaced a planning gap the team hadn't previously identified β€” family reunification, Alternate Care Site staffing, and shelter security β€” giving the group concrete, real findings to carry into their improvement plan.

βœ“ Strengths
  • βœ“MCI protocol was activated immediately, before the first inject β€” triage and hospital pre-notification began without prompting.
  • βœ“Public Health Emergency Authority was activated early, giving the team expanded procurement and mutual aid authority for the rest of the session.
  • βœ“The team coordinated hospital surge capacity proactively rather than reactively, ahead of the diversion inject.
β–³ Gaps Identified
  • β–³No pre-designated family reunification site exists for mass-gathering venues β€” discovered live, mid-exercise, rather than in planning.
  • β–³The identified Alternate Care Site has no signed medical staffing agreement, which would delay activation in a real event.
  • β–³There is no documented protocol for law enforcement response to security incidents inside mass care shelters.
β†’ Recommendations
  • β†’Pre-designate and map family reunification sites for the jurisdiction’s top high-occupancy venues, with a documented activation SOP.
  • β†’Execute the medical staffing agreement for the identified Alternate Care Site before the next exercise cycle.
  • β†’Develop a joint shelter security protocol with law enforcement covering response, de-escalation, and shelter closure criteria.
NIMS Alignment

The session demonstrated alignment with NIMS/ICS principles throughout: roles mapped to ICS positions, action cards were tagged to NIMS components and ESF-8, and the gaps surfaced above are carried into the Improvement Plan in accordance with HSEEP doctrine.


Sample HSEEP Package

This is a complete sample of the documentation package your exercise produces β€” based on the run-through above. Every real session generates its own version of these four documents automatically.

EXERCISE PLAN (ExPlan) β€” SAMPLE
Mass Casualty Incident with Surge Tabletop Exercise
Exercise Details
Sponsoring OrganizationAlachua County Emergency Management
Exercise TypeDiscussion-Based Tabletop Exercise (TTX)
Scenario DeckAll-Hazards Base Deck β€” Mass Casualty Incident with Surge
LocationCounty EOC, Conference Room A
Duration90 minutes
Participating OrganizationsCounty Emergency Management, County Health Department, Regional Hospital System, Fire Rescue / EMS, Sheriff’s Office, Joint Information Center
THIRA Linkage

This exercise addresses the Public Health, Healthcare, and EMScapability gap identified in Alachua County Emergency Management's 2025 Threat and Hazard Identification and Risk Assessment (THIRA) for the Public Health β€” Mass Casualty / Medical Surge threat category.

Core Capabilities Exercised
PHM
Public Health, Healthcare, and EMS
Primary focus
MC
Mass Care Services
FM
Fatality Management Services
OSS
On-scene Security, Protection, and Law Enforcement
PIW
Public Information and Warning
Training Objectives
  1. Practice activation of medical surge protocols across multiple receiving hospitals
  2. Exercise coordination of mass care services for family reunification
  3. Practice activation of mass fatality management protocols
  4. Practice coordination of on-scene security amid family and media convergence
  5. Practice coordinated public messaging through a Joint Information Center
Ground Rules
  1. This is an exercise. No real emergency actions should be taken based on exercise play.
  2. This exercise is conducted in a no-fault, learning environment. All observations are for training purposes.
  3. Players should respond based on their actual roles, current plans, and available resources.
  4. All participants are expected to participate actively and in good faith.
  5. Exercise materials and findings are UNCLASSIFIED and FOR OFFICIAL USE ONLY unless otherwise marked.
  6. The facilitator may pause exercise play at any time to clarify or address issues.
SITUATION MANUAL (SitMan) β€” PARTICIPANT COPY β€” SAMPLE
Mass Casualty Incident with Surge Tabletop Exercise
Exercise Scenario
πŸš‘ Mass Casualty Incident with Surge

A structural collapse at a community event has generated a mass casualty incident. Hospitals are surging and the incident is drawing national media attention.

Initial Conditions

  • Grandstand collapse at county fairgrounds β€” est. 200 injuries, 15 critical
  • All 3 regional hospitals within 20 minutes of diversion
  • Helicopter LZ established but weather ceiling dropping
  • 4 news helicopters over scene
  • Families converging on scene β€” no reunification site

Key Stressors

  • Patient distribution decisions racing against closing hospital capacity
  • Critical injury count raising the risk of a fatality management operation
  • Scene narrative being shaped by media faster than official information can be verified
  • Family search for loved ones colliding with scene access control
  • Air evacuation window closing as the weather ceiling drops
Your Role as a Participant

You are part of a small group operating as an independent emergency management team responding to this scenario. Respond as you would in your real-world position, drawing on your actual plans, authorities, and available resources. There are no wrong answers β€” the goal is open discussion and honest assessment of current capabilities.

AFTER-ACTION REPORT (AAR) β€” SAMPLE
Mass Casualty Incident with Surge Tabletop Exercise
Board Summary

The following action cards were placed by the group during this session, organized by response category.

Hazard ResponseActivate MCI Protocol; Activate Fatality Management Operations; Activate Alternate Care Site
ResourcesCoordinate Regional Hospital Surge Capacity; Activate Medical Needs Shelter Operations
CommunicationsEstablish Public Health Information Hotline
Public InformationIssue Public Health Advisory and Protective Guidance
LeadershipActivate Public Health Emergency Authority
Inject Log
TimeInjectTeam Response
~15 minMass Self-Evacuation SurgeActivated Medical Needs Shelter Operations; identified no pre-designated reunification site
~30 minCritical Hospital at CapacityActivated Alternate Care Site at a high school gymnasium; flagged unsigned medical staffing agreement
~50 minShelter Conflict & Security IncidentRequested deputy posted at shelter; no documented law enforcement protocol for shelters
AI Debrief Findings

Strengths

  • MCI protocol was activated immediately, before the first inject β€” triage and hospital pre-notification began without prompting.
  • Public Health Emergency Authority was activated early, giving the team expanded procurement and mutual aid authority for the rest of the session.
  • The team coordinated hospital surge capacity proactively rather than reactively, ahead of the diversion inject.

Areas for Improvement

  • No pre-designated family reunification site exists for mass-gathering venues β€” this was discovered live, mid-exercise, rather than in planning.
  • The identified Alternate Care Site has no signed medical staffing agreement, which would delay activation in a real event.
  • There is no documented protocol for law enforcement response to security incidents inside mass care shelters.

Recommendations

  • Pre-designate and map family reunification sites for the jurisdiction’s top high-occupancy venues, with a documented activation SOP.
  • Execute the medical staffing agreement for the identified Alternate Care Site before the next exercise cycle.
  • Develop a joint shelter security protocol with law enforcement covering response, de-escalation, and shelter closure criteria.
NIMS / ICS Alignment

The session demonstrated alignment with NIMS/ICS principles throughout: roles mapped to ICS positions, action cards were tagged to NIMS components and ESF-8, and the gaps surfaced above are documented below in the Improvement Plan in accordance with HSEEP doctrine.

IMPROVEMENT PLAN (IP) β€” SAMPLE
Mass Casualty Incident with Surge Tabletop Exercise
Corrective Action Matrix
Capability GapCorrective ActionResponsible PartyTarget Completion
Mass Care β€” Family ReunificationIdentify and pre-designate reunification sites at top high-occupancy venues; develop activation SOPCounty EM + American Red Cross90 days
Public Health, Healthcare, and EMS β€” Alternate Care Site StaffingExecute medical staffing agreement for the designated Alternate Care SiteCounty Health Department120 days
On-Scene Security β€” Shelter Security ProtocolDevelop joint shelter security SOP with law enforcement covering response, de-escalation, and closure criteriaSheriff’s Office + Mass Care Branch60 days
Sample HSEEP Package β€” Mass Casualty Incident with Surge β€” Illustrative OnlyUNCLASSIFIED Β· Everything's Fine: The Disaster Deck

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