Transportation Emergency Response Application (TERA) History, Status, and Recommendations for Alternative Paths Forward

Background and Understanding

The Transportation Emergency Response Application (TERA) is a scenario-based training system for emergency operations center (EOC) command and operational roles. It is compliant with the National Incident Management System (NIMS), Homeland Security Exercise Evaluation Program (HSEEP), and public transportation and state department of transportation (DOT) standards and regulations. It contains training and exercise scenarios and materials that address response to and mitigation of natural and manmade disasters and emergencies (Pigora, 2013).

TERA was delivered through the Emergency Management Staff Trainer (EMST), an exercise simulation application, used by the National Guard Bureau (see Figure 1). The TERA scenarios were developed in Adobe Flash, a technology that is no longer supported (as of December 2020) and will not run on most computer operating systems and Internet browsers. As a result, the TERA scenarios are now unplayable on EMST.

Coinciding with the end of Flash technology, the company that developed the EMST platform explored the business case of transitioning the EMST platform to another technology. Based on the limited interest in EMST found at the time from then-current, potential, and prior customers, the company decided to also end support for EMST.

According to TCRP Web-Only Document 75/NCHRP Web-Only Document 321/ACRP Web-Only Document 52: Command-Level Decision Making for Transportation Emergency Managers, the TERA scenario learning objectives, scripts, injects, and artifacts can be “valuable resources for creating training and tabletop exercises for transportation emergency management” (Madrid, 2022). In this project, research was conducted to identify the audience for those resources, identify the potential approaches and applications through which those resources can be made available, and develop recommendations for transitioning and extending TERA into the future.

Objectives

According to the TCRP Project A-36A request for proposal (RFP), the objectives of the project were to:

• Identify migration/repurpose options for the core features, training capabilities, scenarios, and content of TERA to one or more modern, sustainable platforms; and
• Inform prioritization of the scenario learning objectives, scripts, injects, and artifacts created under ACRP, TCRP, and NCHRP that have the most value as resources for tabletop exercises.

Approach

The research approach focused on value and usefulness to transportation agencies in emergency management preparedness and training. The research team recognized the importance in this project of participation and engagement with transportation agencies and emergency management agencies. The team leveraged existing relationships with national transportation and emergency management organizations along with individual transportation agencies across all modes.

The project was conducted in four distinct phases: (1) a planning phase, (2) an information-gathering phase, (3) an analysis phase, and (4) a recommendation phase.

As part of the planning phase, an amplified project work plan was developed that incorporated the review panel comments and recommendations. This phase also included a review of the TERA scenarios and associated materials to plan for Phase II: Information Gathering.

Phase II of the project focused on information gathering from transportation and emergency management agencies on current training and exercise practices, training needs, and platforms; from emergency management training organizations to determine existing training methods, training materials, and other resources; and from training platform providers to determine current and future capabilities.

An analysis of the findings in the information-gathering phase along with the Phase I TERA review was conducted in Phase III to determine the feasibility of (a) adapting TERA content (as well as determining the types of organizations or entities that might be interested in doing so), and (b) migrating the TERA scenarios and associated materials to a new platform.

In Phase IV, recommendations were developed for the future of TERA—an approach to promote TERA content for interested parties, a budget and scope for a guide to adapting TERA content, and a budget and RFP specifications for migrating TERA to a new platform, if feasible.

This report contains the results of Phases 1 through IV of the project.

Phase I: Planning

In the planning phase, the TERA scenarios discussed in Pigora (2013) were reviewed to assess learning objectives, scripts, injects, and artifacts to get a better sense of their usefulness to airport, state DOT, and public transportation agencies for training and tabletop exercises.

The assessment found that there are changes or additional scenarios that should be considered as part of any future migration project (see Table 1). For example, in recent years, transportation agencies have experienced types of emergencies that most had not encountered before—a global pandemic, extreme heat, and extensive civil unrest. The TERA contagious disease scenarios should be reviewed in light of the actual experience of transportation agencies responding to the COVID-19 pandemic.

A new scenario that addresses the impacts of civil unrest on transportation agencies, such as disruptions to roadways and transportation facilities, and the expectations of transportation agencies in supporting responses to unrest, such as closing roadways and facilities, would be beneficial.

Hurricanes, earthquakes, tornadoes, derechos, flooding, and wildfires in areas and at scales and times of year that are unprecedented have become more common. The existing scenarios addressing these hazards can be updated to include recent experience and the additional knowledge of what is crucial to do, when to effectively prepare and respond, and how to quickly recover. The active shooter scenarios can be updated to reflect more recent events and changes to approaches that address this type of situation. Extreme heat affects all modes and many communities and may warrant consideration for a new scenario. A new flash-flooding scenario in addition to the existing riverine flood scenario is another one to consider developing.

Table 1. TERA scenario review summary.

Phase II: Information Gathering

Survey: TERA Interest

In this phase, the researchers surveyed and interviewed personnel from transportation, emergency management, and other relevant agencies to determine who the designated audience was and what the markets for TERA are or could be. The research focused on whether, among transportation professionals from small, midsize, and large transportation agencies of air and surface transportation modes, there was interest in TERA or potential application of TERA scenarios into existing training or a stand-alone platform for TERA training.

ACRP Web-Only Document 50: Research Roadmap on Safety Issues (Neubauer et al., 2020) identified two key emergency management focus areas for research: a practical guide for effective tabletop exercises (Priority Block 1) and integrating NIMS into airport emergency response (Priority Block 4). In the research conducted for NCHRP Project 20-128 and published as NCHRP Research Report 1088: State DOT Models for Organizing and Operating Emergency Response: A Guide (Matherly et al., 2023), over 75 percent of DOTs that responded to the project survey indicated their desire for more training.

The TCRP Project A-36A survey included questions about awareness of TERA, any previous use of the TERA scenarios and associated materials, current or potential future interest in TERA for exercises or training, and current and preferred methods of emergency management exercises and training. The survey instrument is included in Appendix A.

The questionnaire was shared with emergency managers of all transportation modes through existing databases and contacts from the University of Hawaii Disaster Preparedness Training Center’s ongoing research and training efforts. Additional direct requests were made to the AASHTO Committee for Transportation System Security and Resilience (CTSSR) and to a subset of regional and general airports, and were shared with individual transit agencies and DOTs known from previous research.

A total of 96 responses were received. Not all respondents answered all questions, leading to different totals. Based on the survey results, follow-up interviews were conducted with DOT representatives and a general airport representative to clarify and amplify selected findings. The interviews focused on TERA users (DOT and airport) as well as non-TERA users (e.g., DOTs that employ WebEOC for training).

Breadth and Diversity of Survey Responses

The survey garnered 96 responses from 28 states (see Figure 2). Some states had multiple respondents from different agencies and modes. The color band indicates the number of responses from each state, ranging from one to four per state.

The survey also garnered responses from across all modes, as summarized in Figure 3, which contains details on the number of respondents for each mode and the breakdown of other modes mentioned. Respondents could select more than one mode.

Prevalence of Emergency Training and Scenario-Based Training

Table 2 summarizes emergency management (EM) training basic statistics for the agencies that responded. Findings are fairly consistent with other surveys previously conducted. Most agencies

conduct EM training. A large majority of agencies that conduct EM training use tabletop exercises as part of training, and almost as many include counterparts from other modes as part of their training. Large majorities also conduct separate EOC training and role-based training.

Figure 4 summarizes the scenarios used by respondents for training. Most agencies listed several different types of scenarios. One agency noted that the scenarios used are based on the objectives of the exercise. If the objectives are risk-based, then the agency’s greatest threats are used in the scenarios. If the exercises are focused on capabilities-based training, a more customized scenario may be used.

Table 2. Summary training question responses.

Respondents were asked about their familiarity with TERA. Most were not familiar, as summarized in Table 3. Those that did use TERA were asked how they used it. Agencies have used TERA for annual tabletop exercises (airport) and occasionally in exercises to help organize staff within the department and at outside agencies into the Incident Command System (ICS) structure and roles (DOT).

TERA was found useful because “it lays out the framework necessary for a successful tabletop,” “it’s relatively easy to use,” and “the injects simulate a stress on the system that is hard to approximate without those specific tools.”

Suggestions for improvement included adding “some introductory modules for people who are not familiar with the Incident Command System and how a DOT might organize tasks according to NIMS/ICS.”

Table 3. Familiarity with TERA.

Findings from Previous TERA Reports

Previous publications have identified some issues and areas for improvement with TERA. The TERA scenarios were designed to be applicable to most agencies and for general exercise objectives. They were not expected to be a “replacement for an exercise designed for a specific agency and to test capabilities and plan elements of that agency” (Voetterl-Riecker and Riecker, 2018). The ability to customize TERA training, including “adding positions and forms more familiar” to the specific agency (Madrid, 2022) was suggested as an improvement to make TERA more useful to agencies. ACRP Research Report 187: Transportation Emergency Response Application (TERA) Support Materials for Airport EOC Exercises (Voetterl-Riecker and Riecker, 2018) in particular cautioned against using TERA “because the fewer capabilities and resources of GA [general aviation] airports stretch the foundational assumptions of the exercise scenarios, which may be enough to negate the effectiveness of them for GA airports.” The authors stated that “this advice may also apply to small transit agencies” (Voetterl-Riecker and Riecker, 2018).

The users of TERA in the previous publications “overwhelmingly liked TERA as an exercise facilitation tool” (Voetterl-Riecker and Riecker, 2018) and liked the realism of the multimedia content in the exercises. Other benefits noted included:

• The ability to have “a valuable exercise experience with less commitment than a traditional functional exercise, which requires extensive planning/design time and several individuals to staff a simulation cell” (Voetterl-Riecker and Riecker, 2018);
• The fact that, for small groups, TERA “allowed for detailed, one-on-one discussions about their role and expectations” (Madrid, 2022); and
• That the scenarios “supported orientation and supplemental training for staff” (Madrid, 2022).

Summary of TERA User Interviews

Utah DOT (UDOT) has employed TERA for training, and it is seen as an effective collaboration tool. One benefit mentioned during an interview with UDOT was that TERA reminds participants who are interfacing with other agencies about protocols and related challenges. The TERA wildfire scenario that UDOT used examined the DOT interface with people making decisions; this examination showed that the DOT facilitates evacuation but does not manage evacuation. The scenario demonstrated the value of memorandums of understanding (MOUs) and the potential to influence (poor) decisions. TERA is also useful for imparting NIMS/ICS principles, such as span of control and unified objectives, to exercise participants who may not be well-versed in them.

Rocky Mount–Wilson Regional Airport (KRWI Airport) in North Carolina, in coordination with Nash County Emergency Management (NCEM), has used TERA for annual training for the past several years. KRWI runs a different scenario each year as a tabletop exercise, using TERA scenario materials customized as needed. NCEM runs the tabletop exercise and adds elements as needed to enable NCEM to claim required exercise credits. The tabletop exercises proceed in a manner similar to a PowerPoint presentation and include a briefing, an incident with strategizing and discussion, and a hot-wash debrief. KRWI noted in an interview that it had used the materials under the guidance of NCEM but had not realized the source of the materials until it investigated when asked to participate in this survey. KRWI sees great value in the materials and believes that many agencies may be using them without being aware of their derivation. KRWI also believes that greater functionality and flexibility would be useful, especially to larger airports with more rigorous training requirements.

Applications, Tools, and Technologies

An open-ended question asked agencies what applications, tools, or technologies they use for their training. The responses, from 22 survey respondents, provided insight into similarities and differences between modes and spurred some of the follow-up interviews and questions for exploring potential platform migration for TERA. Table 4 summarizes responses by tool or technology type and mode.

Many agencies report using now-common collaboration tools such as Microsoft Teams, Slack, and SharePoint. Many report using common data tools such as Google Earth and ArcGIS, simulated weather data from the National Weather Service (NWS), and vehicle tracking software. Some report using emergency management software, such as WebEOC and Everbridge, as stand-alone training platforms or as part of an array of technologies. Two report using the emergency scenario simulator Hurrevac, while one reports using a full suite of technologies, including TERA, WebEOC, and Hurrevac.

Two DOTs that primarily use WebEOC, Alabama DOT and Indiana DOT, along with their emergency management agencies, were interviewed to identify its perceived advantages and potential drawbacks. The Alabama Emergency Management Agency (Alabama EMA) employs WebEOC software management systems to coordinate situational awareness and communications and to track resources for emergency events. Alabama EMA also directs and coordinates emergency management training across agencies throughout the state in accordance with Federal Emergency Management Agency (FEMA) requirements. Alabama EMA uses WebEOC as its platform for training exercises to ensure greater familiarity across all sectors with the WebEOC protocols and platforms that will be used in emergency situations. Alabama EMA typically organizes major training exercises with substantial input from participating agencies, including Alabama DOT. Alabama DOT also uses WebEOC as its platform for training, consistent with Alabama EMA. Using WebEOC for training does not incur additional costs beyond the basic fees and membership.

Example Alabama scenarios (led by Alabama EMA and supported by Alabama DOT and other agencies) included a major north Alabama dam rupture scenario as well as the governor’s regular hurricane scenario. In 2023, the governor’s hurricane scenario was conducted in tandem with a major National Guard exercise. The TERA scenarios are not as granular as the scenarios used in the Alabama EMA exercises conducted with the DOT and other state agencies. These exercises are designed to test existing plans and procedures in the state.

WebEOC does not have ready-made templates or scenarios for training purposes. It does have set-aside spaces for training and can support agencies that wish to conduct training on its platform. WebEOC training coordinators can assist a subscribing agency or organization in developing and sending out prescribed information to selected (or all) training participants (such as injects), but they do not develop the training.

Table 4. Tools and technologies in use for training.

The Indiana Department of Homeland Security (IDHS) is responsible for emergency management and preparedness for the state. IDHS employs WebEOC software management systems to coordinate situational awareness and communications and to track resources for emergency events. IDHS also directs and coordinates emergency management training across agencies throughout the state in accordance with FEMA requirements. IDHS uses WebEOC as its platform for training exercises. Major IDHS training exercises have included earthquake and tornado scenarios.

The Indiana Department of Transportation (INDOT) participates in IDHS training as ESF-1 (Emergency Support Function 1) and employs WebEOC. INDOT does not routinely initiate or create stand-alone DOT emergency preparedness training exercises or scenarios. The April 9, 2024, solar eclipse activation was prepared, which was found to be comparable to a blizzard activation and allowed the agency to better anticipate substantial uncertainty and unknowns. Indiana declared a state of emergency in anticipation of the eclipse, enabling substantial planning and public awareness of likely eventualities.

UDOT employs WebEOC and other tools to design and carry out EM training. UDOT notes that most UDOT staff do not use WebEOC since it is a resource management tool at the EOC level. Only staff that liaise with the state EOC use it regularly. UDOT staff may use Google Docs across sections.

EM Simulations and Training Applications

A review of emergency management and other federal training catalogues was done to identify any existing training courses that provide similar capabilities to those of TERA; this review is summarized in Table 5. Interviews with personnel at transportation training facilities and the developer of EMST/TERA were also conducted.

The review looked at emergency management, training, and other applications that had the potential for discussion-based and operations-based exercises, the two broad categories of exercises defined by HSEEP. In particular, the review explored options for tabletop exercises, drills, and functional exercises (see Table 6) in both hybrid and virtual environments.

Table 7 summarizes the proprietary/commercial platforms that may be available for TERA migration. According to the FEMA National Exercise Division (FEMA, 2021), state and local stakeholders have found that using the platform they use for real-world operations in their exercises and training leverages existing access and familiarity. Therefore, emergency management operational platforms such as WebEOC were included since many transportation agencies are familiar with their use. Brief overviews of each application and relevant features are provided in Appendix B.

Personnel from the Texas A&M Engineering Extension Service (TEEX-TAMU) were interviewed on April 17, 2024, to explore their training and development tools, program, and platform. TEEX-TAMU discussed the development and simulation tool it uses for emergency response training, EM*ES (Emergency Management * Exercise System), highlighting its importance in bringing entire teams together for a more realistic and effective learning experience. TEEX-TAMU’s customized exercise development process incorporates realistic scenarios and resource-ordering processes. Developed to train first responders after 9/11, the simulation tool delivers emergency operations training to teams from various jurisdictions. Most training is carried out on-site in a custom exercise control room as a 3.5-day exercise course and employs web-based resources for ICS training.

The base-scenario environment is based on Corpus Christi, Texas, and focuses on resource deployment. Screens around the room are able to play news broadcasts or other videos, with each inject fired automatically on a timeline. Multiple roles are available, as are multiple scenarios,

Table 5. EM training courses.

including active shooter, train derailment, and airplane crash. Training at different levels of incident command focuses on different levels of granularity and visibility of resources.

EMST had unique capabilities for its time, including supporting and simulating multiple roles in the incident operations center (IOC), customization features for roles and scenario building, and multitier scenarios. As noted, TEEX-TAMU currently provides most or all of those features in its training simulation platform.

In addition, training, eLearning platforms and technologies, and learning management systems (LMSs) were reviewed to determine the capabilities and requirements of the technologies/platforms and to assess the compatibility of the TERA content to the platforms or technologies along with an assessment of the effort that would be required to make the TERA content compatible to those platforms or technologies. Standards for eLearning platforms and LMSs, such as Sharable Content

Table 6. HSEEP exercise categories (FEMA, 2020).

Table 7. Proprietary/commercial platforms.

Object Reference Model (SCORM), exist to ensure that the online learning content is interoperable (i.e., the content can be uploaded to any LMS that is also SCORM compliant). National Disaster Preparedness Training Center (NDPTC) uses an eLearning platform for its online training courses that is SCORM compliant.

Open-source, low-cost, and no-cost LMS platforms were investigated and reviewed along with commercial and proprietary platforms and technologies (see Table 8). Technologies that can be used for training and eLearning (e.g., web portals and online collaboration technologies) are listed.

Some of the considerations to take into account when pursuing open-source, low-cost, and no-cost options as a potential for TERA migration include:

• Cybersecurity – ensuring that the platforms and technology have adequate cybersecurity and that there is an ongoing security update process to address future cybersecurity risks.

Table 8. Open-source and low-cost platforms.

• Familiarity – that the platforms are either similar to technology that agencies are already familiar with or are relatively easy to use or learn how to use without extensive training required.
• Flexibility – that the platforms and technology are flexible enough to allow the customization required for agencies to adapt the tool to their objectives, roles, and events.

As part of this phase, the developer of TERA, Engineering & Computer Simulations, Inc. (ECS), was contacted. ECS was also the developer and host of the EMST, the National Guard Joint State Response Training System. Shane Taber, chief information officer of ECS, was interviewed on May 6, 2024. The interview explored both the interest in the TERA content and the costs/requirements for migrating the platform.

By 2019, EMST and TERA usage had diminished to primarily just TRB as a known user. The impending end of life for Adobe Flash in December 2020 posed a major challenge. Migrating from Flash would require a complete rewrite of the application. ECS investigated maintenance and migration options, but there was no client interest or funding available at that time.

According to Taber, there are three main determinants of the cost of the migration:

• The kind of multi-platform support required [e.g., providing web-based support for multiple devices (computers, tablets, smartphones, etc.)]. The more platforms/screens included, the higher the development and testing costs.
• The scope of the content that will be migrated, the number of roles to provide, and the customization capabilities desired are all major cost drivers.
• The number of users for the tool. TERA supported from one to 200 users. Relaxing the constraint of 200 users would reduce the cost of development, according to ECS.

Transportation agency training and knowledge management staff at the National Transit Institute (NTI) at Rutgers University were contacted to gain an understanding of the current

and planned technologies that are used, as well as their capabilities, in emergency management training at the institute. NTI described various training courses with varied formats (online and in-person) and platforms. There are currently no emergency management exercise courses being offered at NTI. NTI receives direction on course development and content from the FTA based on demand. NTI provides courses with scenarios, roles, and levels of training. A course on crisis communications was extensively taught and shared during COVID-19 that had similar role playing and scenario-based exercise components to those of TERA. This course, and others typically taught in a workshop format, are made up of modularly based, instructor-presented information on essential concepts. Group discussions and small-group breakout sessions with facilitators support the instruction.

Most NTI training is instructor-led, and LMSs are not used. In terms of technology, NTI has found that it best to use the most basic technology possible. The institute has encountered issues with more advanced technologies, such as agency firewall restrictions and unfamiliarity, that required additional training. NTI staff are familiar with course-development software such as Adobe Articulate 360 and Adobe Captivate but have not used them as their training technology has historically been more basic. Online courses typically use Zoom and breakout rooms; tools like Canvas and Moodle may also be used. If directed to by the FTA, NTI could develop and host training for EM.

Lynne Forbus and Radonna Snider of the TSI Transit Safety and Security Division were interviewed about their division and the potential utility of TERA, the TERA scenarios, and other assets. The TSI Transit Safety and Security Division provides a variety of training programs for transit agencies (bus/rail modes) at the behest of the FTA. These programs include critical safety, security, and operations training and certifications for bus and rail operators, as well as multiple DHS-approved grant-eligible security and emergency preparedness courses. The formats for the courses include classroom instruction, field exercises, and tabletop exercises to simulate real-world scenarios. Other TSI divisions address other modes, such as aviation, highway traffic, hazmat, motor carrier, and pipeline.

The TSI Transit Safety and Security Division currently offers a 4-day virtual and in-person course on managing transit emergencies. The course includes a tabletop exercise to recreate transit emergencies, and it focuses on expanding participants’ knowledge base and addressing regional differences in resources and handling. TERA scenarios and materials are not currently being used at TSI.

TSI staff reviewed the TERA material via links to the TERA EMST materials on the TRB project webpage. The manager of the Transit Safety and Security Division, Larry Day, and the managers in other TSI divisions also reviewed the materials and assets. TSI was unable to discuss TERA with the incoming FTA liaison. After the review, there was no interest in incorporating the TERA materials into current TSI training or using it in the future.

To explore interest in TERA, attempts were made to contact a manager at the TSA Surface Division and a former member of the U.S. National Guard who had participated in the initial development of the TERA application and used it as part of National Guard training, but these attempts were unsuccessful.

Feasibility Criteria

According to previous TERA publications (Pigora, 2013; Madrid, 2022), TERA accommodated individual training, team training, and multiagency training in a scalable format with the ability to assess training performance and was able to allow on-site and off-site staff to collaborate

in exercises and training in real time. Users could customize training and exercises to reflect agency staffing and state or regional characteristics. All levels of learners—novice, intermediate, and expert—were addressed. TERA was free to use, easy to set up, and “allowed participants to exercise the resources and policies they used currently in response to emergencies” (Madrid, 2022, p. v). There was support available through the system host.

The characteristics and criteria used to assess the simulation and training applications based on the TERA capabilities and FEMA guidance for virtual training (FEMA, 2021) are provided in Table 9, with a summary of the applications in terms of the criteria.

Table 9. Criteria and application assessment.

Phase III: Analysis and Review

Feasibility Analysis

In this phase, a feasibility analysis was conducted to determine the interest in TERA, the potential platforms that can be used for a TERA migration, and changes or additions that may need to be made to the TERA learning objectives, scenario scripts, injects, and artifacts of the various transportation emergency scenarios. The feasibility analysis addressed the questions discussed in the following:

• Is TERA still useful to transportation agencies?
  • Can TERA assets be used as inputs to existing training and exercises?

    Survey responses, interviews, and prior publications indicate that the answer to this question is yes. Many agencies are conducting their training using existing sharing platforms such as Microsoft Teams or SharePoint and are building scenarios from past weather events and related information. Publicizing explicit information and guidance on how to access and use the TERA assets could increase the visibility and use of these assets. This could increase industry support for TERA during the potential transition to a stand-alone platform, if it is decided to create one. Some agencies have used TERA assets such as scenarios and injects to support their exercises while working from non-scenario platforms such as WebEOC. An existing exercise simulation platform such as the Texas A&M Engineering Extension Service EM*ES could use the TERA assets as the basis for creating exercise scenarios and training sessions for transportation agencies and communities. NTI confirmed in an interview that the TERA assets could be used to create a new emergency management training course with learning objectives similar to those of TERA.

  • Would transportation agencies use TERA on a new platform after migration?

    Survey responses and interviews indicate that the answer to this question is yes. Representatives from DOTs have indicated that their agencies would use TERA now if it were still available. Many transportation agencies are already using multiple platforms for training and exercises, as discussed previously, so there would be few barriers to using a new TERA platform. Although individuals are becoming more accustomed to accessing information from multiple sources, from social media to the National Weather Service to geospatial data, and working across multiple platforms to communicate with one another, a training platform that incorporates all of these information sources into one would be preferred. A platform already being used by the agency would be ideal. Any new training platform has to be intuitive and easy to use. Assurance of ongoing support and a platform that is easy to maintain are critical for acceptance.

  • Will TERA be used by transportation agencies enough to justify the costs and effort of migrating it to a new platform?

    In this and previous research projects, most agencies have indicated that they want and need more training. The individual agency cost of developing customized training exercises is high, although it is rarely explicitly tracked. Many agencies are developing complex exercises using existing sharing platforms, while other agencies rely on something as basic as a facilitated PowerPoint presentation and discussion. TERA scenarios and frameworks have already been developed and tested with transportation agencies and found to be valuable. A new TERA platform with widespread and low-cost or free dissemination would greatly decrease the costs and effort for individual agencies to improve and carry out effective training, increasing readiness for and quick recovery from disasters. Assuming a reasonable range of platform development costs, the investment in the common good appears warranted because of the anticipated decrease in agency exercise creation costs and the increased training values to agencies across all transportation modes.

• Is migrating TERA to a new platform feasible?

  There are a number of different types of platforms that would be feasible for a TERA migration. These are discussed in the following:

  • WebEOC is used by many agencies for emergency operations and has the capabilities to be used as a training platform, although it may require purchasing a separate instance to be used for training.
  • Texas A&M Exercise Simulation is an exercise tool that has many of the capabilities that were present in TERA and the flexibility to be customized as needed, similar to TERA.
  • Creating a more static modular exercise course with NTI or other training institutes would not replicate the functionality of the TERA online exercise tool, but it would utilize the TERA materials and provide a means to obtain similar learning and collaboration as were possible with TERA.
  • A web portal similar to the U.S. Centers for Disease Control and Prevention (CDC) Tabletop Exercise Simulation Tool (TEST) site could be created.

  Depending on the platform to be used, there would be changes to TERA materials that would be required to migrate TERA to a new platform. The types of changes that would be required include:

  • Modifying scenarios/injects to fit platform templates (e.g., Texas A&M used a specific template for customizing its tool and creating scenarios).
  • Creating instructor materials, especially if TERA is converted into a course offering of an industry training center.
  • Developing additional input information for the platform (e.g., the WebEOC event creation tool requires more information than that available in the TERA scenarios).
  • Designing and developing a website, and coding and modifying TERA materials for distribution via a website if they are not already web-compatible.

  The level of effort required to migrate TERA functionality beyond scenario content (e.g., authoring/editing scenarios, automated feedback, and simulated roles) to the most feasible available platforms varies depending on the platform selected for migration. As an example, Texas A&M indicated during an interview that developing a custom scenario and course for users typically takes about one week for its exercise subject-matter experts (SMEs) and training staff. In addition, while the Texas A&M platform is typically used for incident command training and is capable of conducting EOC training, TERA requires different types of information to be obtained and input. NTI indicated that creating an exercise course using the TERA materials would be doable without requiring additional resources from NTI, but there would be a need for SMEs to work with NTI as part of the course development. Utilizing selected TERA materials in WebEOC may not require resources beyond those needed for other exercises conducted using that platform, although creating instructional information for the use of TERA would be needed.

  Developing a new website as the platform for TERA migration would require the most effort beyond that needed for scenario content. However, based on the CDC TEST example, the development required would not require more effort than what would be needed for any commonly produced informational website.

• Can a TERA migration to a new platform be done cost-effectively?

  Based on the research for this project, TERA could be migrated to a new platform cost-effectively. Again, the types of resources required to migrate TERA to a new platform depend on the type of platform. In general, the migration would require SMEs and personnel familiar with the platform to create scenarios and input other required information, and would also require SMEs in emergency management and TERA to assist in the process, in addition to project management and testing resources. Some platforms may require platform-specific resources, such as Texas A&M exercise simulation or training institute personnel, to create

• the simulation or course and manage the migration process. Web developers, designers, and testers would be required to create TERA website.

• Who could be responsible for the maintenance of the TERA assets?

  Responsibility for TERA maintenance would depend on the platform used for the migration. Commercial platforms are maintained and updated by the platform company. Contracts can be created that specify the expectations and requirements for maintenance as part of the licensing agreement. The specific TERA scenarios and other assets are inputs to the platform that are not typically part of maintenance agreements. Agencies, themselves or as part of industry associations, may need to be responsible for the maintenance of the TERA assets.

  If TERA were part of a training institute, such as NTI, or a federal training consortium, then the training institute or consortium could become responsible for the maintenance of the TERA assets. If TERA were migrated to a website, then the host of the site would be responsible for the maintenance of TERA.

• Who could provide governance for TERA?

  Governance for TERA would depend on the platform used for the migration. If TERA were on a commercial platform, governance would be more complicated since the commercial requirements of the platform company would take precedence over the needs of TERA users. The decision made by the original developer of the TERA online tool to not migrate the EMST platform from Adobe Flash to a new technology is an example.

  If TERA were part of training institute, such as NTI, or a federal training consortium, such as via Texas A&M, then TERA governance would be with the institute or consortium member, following the processes of other government-funded and supported transportation tools and training.

  If TERA were migrated to a website hosted by AASHTO, APTA, or another industry association, then governance would come from the association and its members, the transportation community.

  TCRP Web-Only Document 75/NCHRP Web-Only Document 321/ACRP Web-Only Document 52: Command-Level Decision Making for Transportation Emergency Managers (Madrid, 2022) identified government organizations such as FEMA, U.S. DOT, and state transit and transportation departments as potential sources for financial and technical support. University institutions such as university transportation research centers, university transportation centers, and NTI were noted as other potential sources. The research team believes that, in addition to these potential sources, industry associations such as AASHTO (in particular, its National Operations Center of Excellence) and APTA would be other sources to consider for financial and technical support.

Phase IV: Recommendations

Recommended Approach for TERA Promotion

While TERA was developed to be useful to transportation and emergency management agencies, there were various reasons that transportation agencies may not have used it. One of the more common complaints found in the previous TERA publications was that agencies did not know that TERA existed (Madrid, 2022). Another reason given was a lack of practical, how-to-use instructions regarding the scenarios and associated materials (Madrid, 2022). Other impediments mentioned included limited resources and lack of priority or motivation, especially if agencies had not experienced a recent large-scale weather event or natural disaster (Madrid, 2022).

Organizational buy-in, especially by agency leadership, is necessary for the TERA scenarios and associated materials to be used in agency emergency management programs. Transportation

agency leadership in particular must understand the value of TERA, and adoption may require targeted exposure to C-level decision-makers (Pigora, 2013).

In addition, emergency management is a multi-jurisdictional, multidisciplinary, and multifunctional process that requires coordination and collaboration. Coordination and collaboration with the state emergency management agencies are critical for effective emergency management, as are coordination with city, county, regional, state, and federal emergency management organizations.

A previous TERA publication (Madrid, 2022) included recommendations for future promotion, including:

• Developing how-to-use guides, a brochure summarizing capabilities and benefits, and other promotional materials.
• Convening transportation leadership executive forums to gain buy-in and commitment from agency leadership. National transportation organizations such as AASHTO and APTA, along with the International Air Transportation Association, Airlines for America (A4A), American Association of Airport Executives (AAAE), Airports Council International–North America (ACI-NA), and others may provide opportunities to hold executive events.
• Holding a series of hybrid (virtual or in-person) multistate workshop training for transportation emergency managers on TERA use and how TERA can be used at their agencies.
• Establishing a TERA implementation team composed of transportation agencies that have used TERA for training and exercises to support the use of TERA and promote the platform migration.
• Exploring opportunities with established regional and multistate organizations [e.g., metropolitan planning organizations (MPOs), law enforcement, and other local, state, regional, and federal stakeholders], for training sessions.
• Leveraging relationships with national and international organizations [e.g., working through the leadership International Association of Emergency Management (IAEM) EM committee and U.S. organizations to build support for TERA]. The recommended approach is included in Appendix B to this report.

Recommended Budget and Draft Scope for Adaptation Guide

A recommended budget and draft scope for the project to create an adaptation guide for interested parties to adapt the TERA content were developed. The draft scope, provided in Appendix C of this report, includes the information shown in Table 10.

Budget and Draft Scope for TERA Migration RFP

A budget and draft scope for the RFP of the TERA migration project were prepared and are included in Appendix D. A summary is shown in Table 11.

Table 10. Draft scope summary.

Table 11. Summary of suggested budget and scope.

Conclusions

This research determined that TERA could still be useful to transportation agencies and that some transportation agencies would use TERA if it were available. TERA scenarios and existing content can be used in agency training. Common emergency management platforms such as WebEOC have been used with TERA scenarios and injects to support agency exercises. Existing exercise simulation platforms such as the TEEX-TAMU EM*ES are capable of using TERA assets as the basis for creating interactive simulation exercise scenarios and training sessions for transportation agencies and communities. Transportation training institutes, such as NTI, could use TERA scenarios and assets to create a new in-person emergency management training course that includes role playing and could have learning objectives similar to those of TERA.

Based on the research for this project, more information about and promotion of TERA assets and capabilities, through an awareness campaign and development of a user guide, would increase use of TERA by transportation agencies across multiple modes. Further, TERA could be migrated to a new platform cost-effectively. The migration would require (1) personnel familiar with the platform to modify scenarios and input other required information, (2) SMEs in emergency management and TERA to assist in the process, and (3) project management and testing resources. The level of effort required to migrate TERA functionality beyond scenario content (e.g., authoring/editing scenarios, automated feedback, and simulated roles) to the available platforms varies depending on the platform selected for migration.

This project developed two project scopes and budgets for future research on TERA: (1) a budget and scope for creating a how-to or user guide on adapting TERA content to existing training and platforms, and (2) a budget and RFP specifications for migrating TERA to a new platform. In addition, an approach was recommended to promote TERA content for interested parties. To continue TERA beyond 2025, funding for these development projects would be necessary.