Division of Homeland Security
and Emergency Management
Colorado Department of Public Safety
Message from the Director
It gives me great pleasure to present to you the first Colorado Division of Homeland
Security and Emergency Management (DHSEM) Strategic Plan. This document guides
our vision to make Colorado communities safe, secure and resilient from all-hazard
events including acts of terrorism. In order to achieve this vision, guiding principles
are established that will lead the Division to successfully accomplish its
On July 1, 2012, the Division began its journey in the midst of an active
wildfire season including the High Park and Waldo Canyon Fires as
well as numerous other fires that destroyed more than 648 structures,
killed six civilians and burned more than 384,800 acres. This was
followed in 2013, by a wildfire season that destroyed more than 500
structures and two lives lost during the Black Forest and Royal Gorge
fires, the West Fork Complex Fire totaling more than 109,000 acres
and devastating flash floods in the burn scars of the previous wildfires
resulting in additional lives lost.
The strategic planning process provided the opportunity to reflect
on lessons learned over the past year as we began our journey as the
Division of Homeland Security and Emergency Management. We
were able to evaluate the alignment between our responsibilities and
resources. This evaluation process reflected on the results of both an internal survey
of Division employees and an external customer survey. The results are six goals that
will give the Division direction in meeting its mission.
Kevin R. Klein, Director
Colorado Division of Homeland
Security and Emergency Management
Table of Contents
Message from the Director
Using this Document 5
Explanation of Key Terms
Vision, Mission and Values
Guiding Principles 12
Goals and Objectives 16
Planning Process 20
As a division of the Colorado Department of Public Safety,
Homeland Security and Emergency Management provides
leadership and support to help keep Colorado safe and
secure from all types of hazards, natural or humancaused. To guide the Division in an effective, efficient
and elegant manner in accomplishing its responsibilities,
a strategic planning process was initiated in early 2013.
This resulting Strategic Plan provides the framework for
the Division’s continuing progress toward developing and
maintaining internal and statewide capabilities to prevent,
protect against, mitigation, respond to, and recover from
This plan represents Phase One of the Division’s
comprehensive strategic planning effort. The document
establishes core values and guiding principles to direct
behavior and decisions, while identifying goals and
objectives toward fulfilling the Division’s vision and
mission. Phase One provides the groundwork for Phase
Two, where detailed work plans for mission areas will be
developed. These work plans will incorporate measurable
actions in support of the strategy and provide the
directional foundation for every employee in the Division.
Developed in consideration of
departmental and divisional
Using this Document
Explanation of Key Terms
An explanation of key terms used throughout this
plan is provided near the front of this document.
By including key terms near the front, provide
readers have a baseline explanation of terminology
prior to coming across it in the plan. To ensure
content is placed in proper context, it is critical
that key terms throughout the document are
understood and that the explanation be referenced
when context is in question.
Vision, Mission and Values
The vision and mission in this Strategic Plan
set forth the Division’s desired future state and
organizational purpose as established in Colorado
statute. The vision and mission statements are
intentionally simple and written to convey a
clear message. Values serve as the foundation
of Division culture. The Division’s values are
presented in this Strategic Plan to provide a base
of expectation on what drives employee and
organizational behavior and decision making.
Guiding principles direct how Division employees
will conduct relations with internal and external
customers, partners and stakeholders while
working to realize the vision and accomplish
the mission. These principles are intended to be
actionable, meaning they provide an organizational
base from which to develop assignable and
measurable actions to improve internal and
external processes, products and performance.
Actions implementing the guiding principles will
be incorporated into overarching or mission area
Goals and Objectives
Goals presented in this Strategic Plan support
the focus of the Division. The Division’s goals
are aligned to support the five mission areas of
the National Preparedness Goal: protection,
prevention, response, mitigation, and recovery.
Objectives are the lowest resolution of strategy
included in Phase One. Each objective is associated
with a singular goal and is not intended to be
directly measurable, but is supported through
measurable activities. The Division’s objectives
align the current and emerging activities to achieve
An incident or event, environmental or human caused, that has the potential to result in injury or loss of life; damage
to or loss of equipment, infrastructure services, or property; or cause a functional degradation of society, whether
economic or environmental. These incidents or events include, but are not limited to avalanche, landslides, mud/debris
flows, rockfall, tornadoes, extreme heat, winter weather, wildfire, flood, earthquake, wind, storm, hazardous substance
incident, oil spill or other water contamination requiring emergency action to avert danger or damage, volcanic activity,
epidemic, air pollution, blight, drought, infestation, explosion, civil disturbance, or hostile military or paramilitary
Person, structure, facility, information, material or process that has value.
The means to accomplish a mission or function and achieve desired outcomes by performing critical tasks, under
specified conditions, to target levels of performance. Additionally, the combination of all the knowledge, skills and
resources available within a community, society or organization that can reduce the level of risk, or the effects of a
disaster or emergency event.
People with common interests and shared responsibilities. Reflects the Whole Community concept inclusive of
individuals and families, businesses, faith-based and community organizations, non-profit groups, schools and
academia, media outlets, and all levels of jurisdictions and their governments, including state, local, tribal and federal
Communities and citizens the division serves.
Occurrence or imminent threat of widespread or severe damage, injury, loss of life or property and
social or economic disruption resulting from a natural or human-caused event.
Evolving events that may require technical expertise or resources in support of local efforts.
A potential event, natural or human source or condition, that has the potential to cause harm, injury, loss
of life, damage equipment or property, or impact technological sources. A hazard differs from a threat
in that a threat is directed at an entity, asset, system, network, or geographic area, while a hazard is not
The ability to inspire motivation in others by character, humility and example to move toward a desirable
vision. Effective leadership, whether formal or informal, is helping other people rise to their full potential
while accomplishing the mission and goals of the organization.
Groups of core capabilities, including prevention, protection, mitigation, response, and recovery.
Activities implemented prior to, during, or after an incident designed to reduce or eliminate risks to
persons or property or to lessen the actual or potential effects or consequences.
The actions taken to plan, organize, equip, train, and exercise to build and sustain the capabilities necessary to prevent,
protect against, mitigate the effects of, respond to, and recover from those threats and hazards that pose the greatest risk
to the security of the state.
Activities necessary to avoid, intervene or stop a threat, disaster or emergency event.
Actions to reduce the vulnerability of people, communities and their assets, including critical infrastructure and key
resources, in order to deter, mitigate, or neutralize risks.
The process of restoring public services and returning the community to a new normal while taking advantage of opportunities to mitigate future disasters and build a more resilient community.
The ability to adapt to and withstand changing conditions and rapidly recover from disruption.
Activities necessary to save lives, protect property and the environment, and meet basic human needs after an incident
Personnel and major items of equipment, supplies, and facilities available or potentially available for assignment to
incident operations and for which status is maintained. Resources are also technical expertise, funding, and services
provided during steady-state or during a disaster or emergency event.
Safe and Secure
Free from danger, harm or injury.
A state where operations and procedures are normal and ongoing. Communities are considered to be at a
steady-state prior to disasters and after recovery activities are complete.
Provision of resources to assist others with accomplishing mission, tasks or building capabilities.
Meeting the needs of the present without compromising the ability of future generations to meet their
The unlawful use, or threatened use, of force or violence by a group or individual against persons or property to intimidate or coerce a government, the civilian population, or any segment thereof in furtherance
of political or social objectives.
A natural or human-caused occurrence, entity, or action that has or indicates the potential to harm life,
information, operations, the environment, and/or property.
Vision, Mission and Values
The vision, mission and values ground the Division’s strategic direction. These three components are critical in
establishing common expectations for Division employees, as well as for external customers, stakeholders and partners.
The vision captures the desired outcome of the organization as a future end state.
The mission represents the Division’s fundamental purpose or scope of activities as guided by statute and other
The mission statement succinctly describes why the Division exists and what we do to achieve it.
Values are articulated within the strategy to serve as a foundation of the Division culture. The values will guide
employee and organizational behaviors and decision making.
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Colorado communities are safe, secure and resilient from all-hazard
events including acts of terrorism.
Provide leadership and support to Colorado communities to prevent,
protect, mitigate, respond and recover from all-hazard events
including acts of terrorism.
Division of Homeland Security and Emergency Management
employees will build public trust and confidence through
performance and partnerships. Employees will achieve this by
demonstrating a commitment to excellence reflected in the services,
skills, collaborations, timeliness and understanding we provide to
those we support, and to those we garner support from.
As representatives of state government, and as individuals, we value
communication, transparency, consistency, compassion, innovation,
personal excellence, mutual respect, and teamwork. We hold
ourselves accountable to our partners and Colorado communities
by honoring commitments, focusing on outcomes, and striving
for the highest quality of service. We are committed to our chosen
profession and believe that the services we provide are essential.
People with common interests and
shared responsibilities. Reflects
the Whole Community concept
inclusive of individuals and
families, businesses, faith-based
and community organizations,
non-profit groups, schools and
academia, media outlets, and all
levels of jurisdictions and their
governments, including state,
local, tribal and federal partners.
Safe and Secure
Free from danger, harm or injury.
The ability to adapt to and
withstand changing conditions and
rapidly recover from disruption.
The ability to inspire motivation
in others by character, humility
and example to move toward
a desirable vision. Effective
leadership, whether formal or
informal, is helping other people
rise to their full potential while
accomplishing the mission and
goals of the organization.
Provision of resources to assist
others with accomplishing mission,
tasks or building capabilities.
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In developing the strategic goals and objectives, eight overarching principles emerged that apply across organizational
activities. These principles are central in moving the Division toward a systematic approach in consideration of
internal and external necessities and desired outcomes. These principles drive how the Division will support and grow
employees, and how employees will in-turn conduct relations with colleagues, customers, partners and stakeholders.
• Invest in a motivated team of dedicated and empowered professionals.
• Embody a systematic approach of continuous improvement.
• Excel in effective and timely communication.
• Advance and assist partnerships and collaboration.
• Maximize the provision and management of resources.
• Assist with strengthening and sustaining prepared communities.
• Incorporate and advance proven and reliable technology.
• Deliver an integrated statewide preparedness system.
These eight guiding principles will be implemented and institutionalized within the Division as programs, processes and
policies continue to be developed and refined. Measurable actions will be established for each principle. These actions
will be regularly and consistently evaluated to ensure they are effective in moving the Division in the desired strategic
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Invest in a motivated team of dedicated and empowered professionals.
The Division will fulfill its mission through employee successes. The Division will provide the knowledge,
support and organizational structure that motivate employees to maximize their potential and be
accountable for their actions. The Division will foster employee successes by sustaining and empowering
a talented, diverse and professional workforce by providing the best possible leadership, training, material
and equipment, technologies and working environment.
Embody a systematic approach of continuous improvement.
Increasing efficiency and effectiveness through teamwork and customer-focused process improvements
will strengthen the Division and its ability to provide outstanding service, performance and results.
Through the commitment to objectively evaluate our programs and process, the Division and its
employees will best practices and lessons learned to strengthen future planning and operational activities.
Successful development of this culture will result in employee investment, clarity of direction and the
enhanced management of key programs, resources and services. These customer service improvements
will provide integrated and timely assistance and coordination, while promoting innovation and
Excel in effective and timely communication.
The Division recognizes that effective and timely communication is critical to our mission, as well as to
successfully develop and maintain credibility with our communities. The timely exchange of critical and
actionable information is essential in improving our capacity to inform the public and provide accurate
and real-time communications. The Division’s internal and external communications will be guided by
doctrine that conveys clear intent and expectation; and in turn, the Division and its employees will convey
clear and consistent messaging when performing duties and implementing programs and processes.
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Advance and assist partnerships and
Building, enhancing and sustaining capabilities achieves a
more resilient Colorado. The Division recognizes strong
partnerships that leverage diverse and available resources
are essential in fulfilling the mission. To maximize and
sustain resources that homeland security and emergency
management partnerships provide, the Division will
enhance public and private sector relationships by
improving communication, cooperation and coordination.
The Division will continue to build and improve upon
a collaborative culture while regularly and openly
recognizing the invaluable contributions of partners.
Maximize the provision and management of
Resource management is flexible, scalable and adaptive to
support any incident in a rapidly changing environment.
The Division embraces a philosophy where efficient,
effective, and equitable delivery and deployment of
resources requires that resource management concepts
and principles be used in all phases of our programs.
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Resources will be maximized through development of
employee technical skills, leveraging various funding
sources, mutual aid, and provision of reliable management
systems. Effective resource management will eliminate
waste, provide for more cost effective use of limited
funding, and will increase the provision and use of
appropriate resources to meet the needs of Colorado’s
Assist with strengthening and sustaining
Engaging and supporting the Division and communities
through education, training, and exercises, will build a
strong and resilient Colorado. The Division will reach
out and provide ongoing opportunities for communities
to acquire knowledge and skills in order to be self-reliant
before, during, and after a disaster or emergency event.
This ongoing outreach will build effective and sustainable
capabilities for the long term. The awareness and
capabilities gained will result in Colorado communities
that can prepare and plan for, absorb the impact of, and
pro-actively adapt and recover from, major adverse allhazard events.
Incorporate and advance proven and
Advances in technology and its appropriate
application are critical for the Division to
increase capability and improve customer
service. Through internal and external
collaboration, the Division will make strategic
investments for the most relevant, reliable,
accessible and cost-effective and technology to
support its mission. Technology investments
will mutually benefit the Division and
communities by increasing the reliability
of systems while consolidating resources,
communication and processes.
internal teamwork and external partnerships,
the Division will reduce the inefficiencies of
duplicative programs and processes and build
a forward thinking culture of collaboration
and innovation. Collaborating with Colorado’s
homeland security and emergency management
communities, the Division will develop a
comprehensive and consolidated all-hazards
risk assessment to inform and guide Colorado’s
preparedness activities. The Division will
further integrate the state’s preparedness system
by reaching out to understand the capabilities
of our partners, leveraging partnerships to
fill resource and service gaps, and by looking
inward to clarify and consolidate overlapping
Deliver an integrated statewide
An integrated preparedness system is critical
to developing a shared understanding of
Colorado’s threats and hazards, and to
delivering appropriate and effective services.
By embracing strengths gained through
[ 15 ]
Goals and Objectives
The following six goals and related objectives address the Division’s strategic direction in implementing
its mission of preparing for, protecting from, mitigating against, responding to, and recovering from the
impacts of all-hazard incidents and acts of terrorism, as well as delivery of resources and services in support of the mission areas.
Deliver effective and efficient processes, resources and services in support of mission areas.
Ensure a safe and secure environment from threats, hazards and incidents.
Protect and safeguard people and assets from the consequences of threats, hazards and incidents.
Reduce the loss of life and property by avoiding or lessening the impact of hazards.
Provide coordination and support to all-hazard incidents and threats.
Support comprehensive community recovery efforts before, during and after incidents.
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Objectives associated with each goal are not intended to be directly measurable, but rather to set the stage for aligning
current and developing measurable actions to accomplish the objectives in support of each goal. These measurable
actions will be established in mission area work plans and tied to employee performance.
Support Goal - Deliver effective and efficient processes, resources and services in support of mission areas.
1.1. Develop and maintain customer focused processes and procedures that support financial and grant
1.2. Facilitate the shared use of and purchase of equipment with limited funding sources.
1.3. Provide reliable information technology, equipment, systems and support.
1.4. Ensure resource accessibility and connectivity to employees and external users.
1.5. Devise and deliver protocols ensuring the rapid mobility of employees during steady-state and
1.6. Develop, enhance, and deliver policy for processes and protocols lacking clear direction or consistency.
1.7. Provide a comprehensive training and exercise program to bolster internal and external capabilities.
1.8 Provide accurate and timely information to partners and customers through a variety of mediums.
Prevention Goal - Ensure an environment safe and secure from threats, hazards and incidents.
2.1. Collect, assess and disseminate information regarding threats to the public’s safety and provide timely
recommendations that are realistic and actionable.
2.2. Engage community members to be active participants in the prevention of acts of terrorism and disaster
2.3. Provide and promote an integrated, multi-disciplined, information sharing network to collect, analyze
and disseminate information.
2.4. Assess threats to critical infrastructure and key resources and associated vulnerability through outreach,
threat assessments and timely communication.
2.5. Provide analysis on suspicious activity reports and share information about suspected and known
2.6. Provide support to agencies requesting assistance or resources for information gathering, analysis, the
development of intelligence products or investigation support.
2.7. Provide early warning through daily reports, special reports and incident reports to numerous agencies
representing a multitude of disciplines, taking an all-crimes all-hazard approach.
[ 17 ]
Protection Goal - Protect and safeguard people and assets from the consequences of threats, hazards and
Through the development of a comprehensive protection strategy, provide support and technical
expertise to critical infrastructure partners and our citizens to enhance protection and minimize loss.
Develop strong partnerships across critical infrastructure and key resource sectors with key stakeholders:
federal, state, local, tribal, non-government organizations and the private sector.
Administer the Automated Critical Asset Management System and serve as the point of contact for
related critical nfrastructure and key resources databases for Colorado.
Mitigation Goal - Reduce the loss of life and property by avoiding or lessening the impact of hazards.
4.1. Work with partners to develop, maintain and enhance local level risk reduction through plans, studies,
strategies and related resources.
4.2. Develop, maintain and enhance partnerships by participating in venues and engaging in regular
4.3. Establish, maintain and foster mitigation and grant program expertise to provide comprehensive
technical assistance and to encourage empowered communities.
4.4. Administer federal grant programs by developing and delivering technical assistance, providing tools and
guidance, and communicating grant funding opportunities.
4.5. Coordinate and communicate with partners to encourage and develop mitigation projects to protect
people, property, critical assets and lifelines, economies and the environment.
4.6. Conduct analyses for prospective and enacted legislation and statutes at the State and Federal level to
determine how changes in laws and statutes might impact mitigation operations, capabilities and funding
Response Goal - Provide coordination and support to all-hazard incidents and threats.
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Ensure planning efforts are consistent and in alignment with the State Emergency Operations Plan and
capabilities of the Division.
Review and update existing intergovernmental agreements and memorandum of understandings with
partners; and identify opportunities where new agreements may need to be developed and executed.
Ensure direct support to our partners through field managers, technical resource teams and the State
Emergency Operations Center.
5.4. Assist with resourcing partners through grant funding opportunities.
5.5. Utilize and ensure access to technology and equipment for response through reliable connectivity and
5.6. Strengthen response capability by identifying and providing training specific to the needs of the Division
and our communities.
5.7. Improve state level incident response through exercises.
Recovery Goal - Support comprehensive community recovery efforts before, during and after incidents.
6.1. Develop a comprehensive Colorado Mitigation and Recovery System to include plans, training, grants,
guides, templates, tools and projects to support and enhance community recovery capacity and
6.2. Develop and maintain components of recovery systems through plans, guides, policies, tools and
6.3. Develop and strengthen partnerships across Colorado communities to enhance statewide recovery
6.4. Establish and maintain Divisional content expertise in order to provide comprehensive technical and
financial assistance training to partners and customers.
6.5. Provide consistent and comprehensive support to grantees including eligibility criteria and guidance,
application development, contracting, reporting, reimbursements and closeout.
6.6. Coordinate and communicate with partners to encourage the development of pre-disaster recovery
plans and projects, and post-disaster comprehensive recovery strategies, to protect, restore and improve
communities impacted by disaster events.
6.7. Maintain consistent awareness of state and federal policy and policy trends in order to provide timely
and effective input to legislators and interest groups as requested.
6.8. Assess immediate local recovery resource needs efficiently and comprehensively for appropriate inclusion
in the development and execution of Executive Orders following incidents.
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The Division’s Leadership Team formed the Strategic Planning Committee to coordinate development of the
Division’s first official strategic plan. Strategic planning should be done when an organization is just getting started; an
organization is experiencing environmental changes; and, once a year to ensure alignment between responsibilities and
resources. Each of these rationales for strategic planning justifies the development of this plan.
The Strategic Planning Committee is comprised of eight representatives from across Divisional program areas, the
composition of which is provided in the Acknowledgments section. The Committee met over the course of six months
and followed a three-step planning process. This process involved getting organized, gathering information and
developing the plan.
Although the number of committee members was limited, the planning process was open and inclusive. Division
employees were provided regular project updates, given access to planning documents as they were developed, and
encouraged to formally participate in surveys and draft document reviews. External customers also contributed to the
planning process. Results from the external customer survey were considered when developing the Division’s strategic
The planning process initiated with committee members meeting with the Division’s Leadership Team to establish
expectations. Direction provided by the Leadership Team focused on congruity with the departmental mission and
state homeland security strategy. After considering multiple options for content and structure of the strategic plan,
achieving the strategic direction of the Division is organized into two phases:
[ 20 ]
The first phase of strategic planning, currently represented by this document, focuses on
developing or refining the Division’s vision, mission, values, guiding principles, goals and
objectives. This phase includes collecting data to educate and inform the planning process and
serves to answer the questions of where we are with our strategic direction, where do we need and
want to be, and how do we get there.
The second phase of strategic development will provide a greater resolution of planning. Phase
Two focuses on mission area work plans and the development of measurable actions and project
plans to as they related to implementing the Division’s values, guiding principles, goals and
objectives. The measurable actions will be developed in consideration of organizational and
environmental strengths, weaknesses, opportunities and threats.
The strategic planning process was informed through use of previously completed or ongoing
departmental and divisional strategic planning efforts, recently completed transitional
guidance, employee and external customer surveys, and other local, state and federal emergency
management related strategic plans.
Developing the Plan
The Committee leveraged best practices from existing state and local strategies to develop a plan
outline. The Committee then took a building-block approach by first, establishing the vision
and mission; next, providing a base of values and guiding principles; and lastly, developing
goals and objectives. An iterative process of multiple draft plan reviews was used to refine the
document. Comments and recommendations provide by Division employees were evaluated by
the Committee and integrated into the plan as appropriate. This Strategic Plan was submitted to
the Leadership Team for final review and approval before distribution.
[ 21 ]
Moving the Division forward in the desired direction depends on successful implementation of this Strategic Plan.
Phase One implementation includes plan distribution, maintenance and evaluation. As Phase Two of the strategic
planning process begins, the implementation strategy will apply and expand to encompass the greater resolution of
planning within that phase.
To further support implementation of the Strategic Plan, the Committee developed a report for the Leadership Team
providing recommendations to bridge Phase One and Phase Two of the planning process. The report, based on 2013
employee and external customer surveys and department transitional documents, identifies concerns and proposes
resolutions to be considered prior to, or in concurrence with, Phase Two of the planning process.
Additional considerations for implementing this Strategic Plan and the Division strategic direction should also be
addressed by mission area management. Opportunities should also be provided to employees during Phase Two to
suggest ideas for implementation.
Supported by the Division, employees will be provided proactive access and exposure to the Division’s vision, mission,
values, guiding principles, goals and objectives. This access may include a printed copy of the Strategic Plan, posters
placed within the workplace, standing slides at the beginning of staff meeting presentations, review of strategic direction
[ 22 ]
during performance evaluations, identified linkages to section work plans and to Position Description
Qualifications, incorporation into plans and other documents, and performance related success stories
tied to goals and objectives.
The Strategic Plan and its components will be posted on Division web sites and sent to specific
distribution groups as determined by the Division Director and Public Information Officer.
Completion of the planning process for Phase One should be announced through standard Divisional
social media. Posters placed in meeting spaces throughout the Division stating the vision, mission
and other components will provide an opportunity for visitors to learn the strategic direction of the
Strategic planning within the Division will be institutionalized through activities such as a standing
Strategic Planning Committee, incorporation into the Annual Report, annual surveys of the
employees and external customers, and regular reports to the Leadership Team. The Strategic Plan
Project Management Plan will become a Program Management Plan and focus on strengthening and
implementing the strategic planning process. The plan maintenance schedule will be incorporated in to
the Program Management Plan as the schedule for Phase Two of the planning process is established.
Progress on the implementation of the Strategic Plan will be evaluated through the following activities:
progress on the strategy will be evaluated annually based on the performance measures identified for
work plan actions to be completed throughout a given year; employees will be assigned goals, objectives
and actions that will, in turn, be incorporated into the performance management process; and
achievements toward the vision and mission will be incorporated into the Division’s Annual Report.
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Office / Organization
Kevin Klein Division Director DHSEM
Budget and Finance Manager
JP Burt Office Director Prevention and Security
Dave Hard Office Director Emergency Management
Dana Reynolds Office Director Preparedness
Ken Brink Project Lead Emergency Management
Randy Kennedy Participant Preparedness
Robin Koons Participant Prevention and Security
Ezzie Michaels Participant Preparedness
Fran Santagata Participant Preparedness
Amy Shish Participant / Recorder Emergency Management
Micki Trost Participant Director’s Office
Cindy VonFeldt Participant Emergency Management
Division Staff Stakeholders Survey Respondents
External Partners Stakeholders Survey Respondents