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ICCRTS 2008 The Response to Hurricane Katrina: A Case Study of Changing C2 Maturity

ICCRTS 2008 The Response to Hurricane Katrina: A Case Study of Changing C2 Maturity. James Moffat Dstl, Ministry of Defence, UK. NATO NEC C2 Maturity Model. Being Developed by NATO RTO SAS Panel WG 065

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ICCRTS 2008 The Response to Hurricane Katrina: A Case Study of Changing C2 Maturity

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  1. ICCRTS 2008The Response to Hurricane Katrina:A Case Study of Changing C2 Maturity James MoffatDstl, Ministry of Defence, UK

  2. NATO NEC C2 Maturity Model • Being Developed by NATO RTO SAS Panel WG 065 • Context: A coalition force composed of a number of contributing entities – A ‘Complex Endeavour’ • NATO military elements • NATO civilian elements • Non-NATO countries • Non-Government Organizations (NGOs) • Private Voluntary Organizations (PVOs)

  3. NATO NEC C2 Maturity Model Transformed Operations Agile C2 Integrated Operations Collaborative C2 Coordinated Operations Coordinated C2 De-conflicted Operations De-conflicted C2 Conflicted C2 Disjointed Operations

  4. The C2 Approach Space

  5. De-conflicted C2

  6. Coordinated C2

  7. Collaborative C2

  8. Agile C2

  9. Hurricane Katrina • ‘A Catastrophe on a par with the events of 11th Sept 2001’ • Three authoritative reports supplied by the US • Examples observed of Maturity Levels from Conflicted C2 to Agile C2, changing over time • Balance towards Conflicted C2 end of scale • Observed variables and transitions consistent with Maturity Model

  10. Outline • US Emergency Structure • Hurricane Katrina timeline • Examples of C2 Maturity levels • Change over time • Summary

  11. US Emergency Structure

  12. US Emergency Structure States Local – New Orleans • Response: • Major Disaster (Pull) • Emergency (Pull) • Catastrophe (Push) President (POTUS) Department of Homeland Security (DHS) Federal Emergency Management Agency (FEMA) Interagency Incident Management Group Homeland Security Operations Centre Coordination of Federal Support To States • Federal Coordinating Officer • Coordinating Function • Objectives/Strategies/Plans • Priorities/Public Affairs DoD JTF Katrina Joint Field Office Katrina Specific Request: - Incident of National Significance Request EVENT

  13. Hurricane Katrina Timeline

  14. Thurs Aug 25 • Local emergency preliminary responses within each State • First FEMA teleconference – Federal/State/Local • Plans for evacuation and shelter • FEMA initial pre-positioning • Rapid needs and emergency response teams on alert • Local private sector entities respond • Maturity Level • De-Conflicted C2 at Federal/State Level • Conflicted C2 at Local level • Separate Local responses

  15. Sat Aug 27 • Phase 1 of LA Emergency Evacuation Plan • implemented and MS informed • LA and MS Departments of transportation linked • Evacuation transportation plans coordinated • FEMA activates National Disaster Medical Systems teams • FEMA and FEMA regional HQs in TX and GA go to level 1 • FEMA Mobile Emergency Response Support Detachment deploys to LA from TX • Fed CO appointed (heads Joint Field Office) • LA and MS implement contra-flow traffic plans • LA and MS deploy personnel and pre-position resources • Fed emergency declared by Pres after request from Gov LA • Gov AL offers assistance to LA and MS • Maturity Level – Coordinated C2 at Federal/State level • Limited linking of plans and actions

  16. Mon Aug 29 • Storm hits • Huge damage to power, communications • Damage to infrastructure, transport, healthcare • Mayor of New Orleans could not communicate for 48-hrs • LA and MS request Nat Guard assets from other States • Conflicting reports to Local/State/Fed level • Inaccurate and incomplete information • Lack of situation awareness and Common Operational Picture (COP) • Breaching of levees unclear • Impossible to establish functioning incident command centres • Some emergency responders did not respond • Search and Rescue begins • Maturity Level – Conflicted C2 at Local level • Search and Rescue

  17. Wed Aug 31 • LA and Fed working together to plan evacuation to other States • DoD, DoT, State • local delivery of food, water • plan further evacuation activities from New Orleans • No Federal active duty forces in the area • due to incorrect situational awareness • Large crowds at Convention Centre • no food or water • Search and Rescue • Evacuees deposited on high ground with no coordination or unified command structure • Maturity Level • Conflicted C2 at Local level • Search and Rescue • Coordinated C2 in parts of Federal/State levels

  18. Sat Sept 3 • Evacuation of Convention Centre starts • Food, water and medicine now available • 25,000 to be evacuated • Superdome evacuation continuing • Maturity Level • De-Conflicted C2 for evacuations • Between National Guard and Active Duty Forces via JTF Katrina

  19. Tue Sept 6 • Establishment of Law Enforcement Coordination Centre • Unified Command for Law Enforcement • New Orleans Police, LA State Police, National Guard, Federal Law Enforcement • Maturity Level • Collaborative C2 emerging

  20. Agile C2 • The creation of ad-hoc clinics in downtown hotels was an agile and self-organised response to an awareness of the situation, and the need to adapt • A unique example

  21. Changing Maturity Levels - A Case History Time • Conflicted C2 (initial stage post landfall) • Lack of situational awareness • Impossible to coordinate immediate emergency response operations • Multiple rescue teams in the same area while other areas not covered. • De-Conflicted C2 (Emerging during first few days post landfall) • National Guards and active duty units deployed to different geographical areas • Collaborative C2 emerging (By end of first week post landfall) • Complex and multifaceted C2 structure in place • Coordinating States, civilians, military at both State and Federal level • JTF-Katrina command active units through task forces

  22. Bibliography • ‘The Federal response to Hurricane Katrina: Lessons Learned’. US Dept. of Homeland Security, Washington DC, USA, Feb 2006. • L E Davis et al ‘Hurricane Katrina: Lessons Learned for Army Planning and Operations’. RAND Arroyo Centre, Santa Monica, CA, USA, 2007. • ‘A Failure of Initiative: Final Report of the Select Bipartisan Committee to Investigate the Preparation for and Response to Hurricane Katrina’ US House of Representatives, Feb 2006.

  23. Summary • Examples were observed of changing C2 Maturity Levels ranging from Conflicted to Agile, during the build up to and immediate post landfall of Hurricane Katrina. • The factors marking out these differing Maturity levels have been identified, and are consistent with the current NATO NEC C2 Maturity Model. • In a slightly longer timeframe, the post landfall planning for the reconstruction of the Hurricane Protection System in New Orleans was an example of the Collaborative level of C2 Maturity.

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