Prevention Preparedness, Response and Recovery Disaster Management Guideline

Foreword

The scale and impact of Queensland’s weather events make it the most disaster prone state in Australia. Local and District Disaster Management Groups and the Queensland Disaster management Committee play a vital role in managing and responding to disasters and supporting fellow Queenslanders through these events.

The Disaster Management Act 2003 (the Act) clearly articulates disaster management stakeholders must be ready and equipped to help the community prevent, prepare, respond to and recover from both natural and man-made disasters. This Prevention, Preparedness, Response and Recovery Disaster Management Guideline has been developed to provide guidance to local, district and state disaster management stakeholders with regard to their functions, obligations and legislative requirements under the Act.

This guideline outlines a comprehensive end-to end process for the steps to be undertaken through each of the phases of disaster management, specifically addressing roles and responsibilities of disaster management stakeholders, prevention and mitigation strategies, preparedness arrangements and considerations for planning, the activation of response arrangements, the recovery process and financial arrangements.

The guideline is enhanced by a suite of toolkit items that ensure disaster management stakeholders are fully supported in the planning and management of disaster management requirements.

In the spirit of continuous improvement, the guideline will be reviewed and updated to reflect the changing needs of stakeholders and the collaborative nature of Queensland’s disaster management arrangements.

This ongoing process will capture lessons identified and ensure this document remains a relevant practical resource.

Queensland Fire and Emergency Services (QFES) is tasked with creating safe and resilient communities and to minimising the impact and consequences of emergencies on the people, property, environment and economy of Queensland. To achieve this shared outcome for the state, QFES works side by side with our many stakeholders and partners. It is together that we deliver on this responsibility and together that we recognise the critical relationships and roles we all perform.

I thank all stakeholders for their contribution to the development of the guideline and their continued support and commitment towards our community’s disaster resilience.

Katarina Carroll APM

Commissioner, Queensland Fire and Emergency Services

Proposals for amendment or addition to the content of the guideline are to be submitted via the Suggestions web form.

1 Introduction

1.1 Authorising Environment

The Disaster Management Act 2003 (the Act) and the Disaster Management Regulation 2014 (the Regulation) forms the legislative basis for disaster management within all levels of government and Queensland's disaster management arrangements. As per section 63 of the Act, the Commissioner, Queensland Fire and Emergency Services (QFES) has the authority and accountability for the preparation and management of disaster management guidelines. The authorising environment for disaster management documents is detailed in Figure 1.1 below.

Figure 1.1 Disaster management documents authorising environment.

1.2 Aim

The aim of the Queensland Prevention, Preparedness, Response and Recovery Disaster Management Guideline (the Guideline) is to provide flexible, good practice suggestions and advice to those responsible for implementing disaster management practices. The Guideline complements legislative responsibilities and provides guidance supporting the implementation of legislation, the Queensland Disaster Management Strategic Policy Statement (SPS), the Queensland State Disaster Management Plan (SDMP), the Standard for Disaster Management in Queensland (the Standard) and other key documents.

As per section 63 of the Act, the Commissioner, QFES (as 'Chief Executive') is responsible for the preparation of guidelines to inform the state group, district groups and local governments within Queensland's disaster management arrangements about matters relating to:

the preparation of disaster management plans
the matters to be included in a disaster management plan
other matters about the operation of a district group or local group the Chief Executive considers appropriate having regard to disaster management for the state

This Guideline is augmented with a suite of non-mandatory toolkit items, including manuals, reference guides, forms, templates, maps, diagrams, handbooks and links to related publications, designed to support stakeholders to fulfil their disaster management responsibilities to the Queensland community. These toolkit items are referenced throughout the document and can also be accessed from the Queensland Government Disaster Management website (https://www.disaster.qld.gov.au).

L.1.028 Chief Executive Administrative Arrangements

Further specific functional responsibilities of the Commissioner, QFES are further detailed in other relevant toolkits.

1.3 Guiding Principles

All events, whether natural or caused by human activity, should be managed in accordance with the Act, SPS, the Standard, the SDMP and any relevant disaster management guidelines.

Under section 4A of the Act, disaster management in Queensland is based on four principles:

comprehensive approach
all hazards approach
local disaster management capability
support by the state group and district groups to local governments.

1.3.1 Comprehensive approach

The comprehensive approach to disaster management comprises four phases: prevention, preparedness, response and recovery (PPRR) to ensure a balance between the reduction of risk and the enhancement of community resilience, while ensuring effective response and recovery capabilities.

The four phases of PPRR are not linear nor are they independent of the others. They overlap and support each other as shown in Figure 1.2. For example, recovery activities are likely to begin during the response phase and mitigation strategies may be considered during the recovery phase.

Figure 1.2 The ‘comprehensive approach’ to disaster management.

1.3.2 All hazards approach

The all hazards approach assumes that the functions and activities used to manage one event are likely to be applicable to a range of events, whether natural or caused by human activity.

1.3.3 Local disaster management capability

Local level capability is recognised as the frontline for disaster management, primarily due to the benefits of localised knowledge and networks. As per section 4A(c) of the Act, local governments are primarily responsible for managing events in their local government areas (LGAs) and this is provided through their Local Disaster Management Group (LDMG).

1.3.4 Support by district and state groups

To ensure the LDMG is able to effectively undertake disaster operations, Queensland’s disaster management arrangements divides Queensland into 22 disaster districts with each district comprising one or more LGAs (and therefore LDMGs). The Act establishes a District Disaster Management Group (DDMG) for each district, to provide support when required or requested by a LDMG. The Queensland Disaster Management Committee (QDMC) can provide additional support and assistance when required or requested by a DDMG.

1.4 Collaboration and Interoperability

Disaster management in Queensland requires local, district and state groups, government agencies and non-government organisations (NGOs) to work effectively together under Queensland’s disaster management arrangements.

Groups at each level of Queensland’s disaster management arrangements (local, district and state) must consider how they can best collaborate, consult, communicate and ensure interoperability with key stakeholders (e.g. community members or groups, essential service providers, agencies, key tourism and transport operators and NGOs).

In accordance with section 48A of the Act, disaster management groups at all levels must consult with essential service providers (e.g. gas, electricity, telecommunications, water and sewage infrastructure) if their Chairperson considers they can help the group perform its functions.

1.5 Continuous Improvement and Innovation

1.5.1 Continuous improvement

The practice of continuous improvement involves the regular evaluation, and subsequent improvement, of processes and arrangements to ensure they remain relevant, efficient, effective and flexible. Disaster management stakeholders, researchers, educators, policy makers and the community have a joint responsibility to ensure continuous improvement initiatives are shared across the disaster management sector to promote innovation, efficiency and efficacy.

1.5.2 Innovation

Innovation is more than improving existing methods, processes or products; it must also encompass finding the best, fit-for-purpose solutions to achieve identified outcomes.

Disaster management stakeholders are encouraged to seek and explore opportunities for innovative solutions to meet the needs of the Queensland community across all phases of disaster management.

1.5.3 Lessons Management

Lessons management is a key element of continuous improvement and disaster management stakeholders in Queensland are urged to apply this learning practice. It involves the identification and learning of lessons captured through evaluation activities (including debriefing, monitoring and reviews) occurring before, during and after emergencies. It includes the establishment of a learning culture to support the capturing of observations and insights from monitoring, debriefing and review activities, which are then analysed for trends, risk and lessons. Lessons are then assessed for action, which are in turn implemented and monitored for change and improvement.

It is strongly recommended that the strategy applied by disaster management stakeholders be consistent with The Australian Institute for Disaster Resilience Handbook for Lessons Management.

More information on The Australian Institute for Disaster Resilience Handbook for Lessons Management can be found at their website.

2 Roles and Responsibilities

2.1 Disaster Management in Queensland

Queensland's disaster management arrangements are characterised by and implemented through strong partnerships between government, government-owned corporations, NGOs, commerce and industry sectors and the local community.

The arrangements recognise and promote collaboration to ensure comprehensive disaster management through the effective coordination of disaster risk planning, services, information and resources.

Queensland’s disaster management arrangements comprise a four tiered system: three levels of government – local, state and federal – and an additional state government tier between local and state levels known as disaster districts. These disaster districts enable a more efficient and effective operational service delivery in support of local communities and address the size, complexity and diversity of Queensland.

2.1.1 Disaster Management Structures

Queensland's disaster management arrangements enable a progressive escalation of support and assistance through the four tiers as required as shown in Figure 2.1. These arrangements comprise several key management and coordination structures for achieving effective disaster management in Queensland.

The management and coordination structures are:

Disaster management groups that operate at local, district and state levels and are responsible for the planning, organisation, coordination and implementation of all measures to mitigate/prevent, prepare for, respond to and recover from disaster events.
Coordination centres at local, district and state levels that support disaster management groups in coordinating information, resources and services necessary for disaster operations.
Disaster management plans, developed to ensure appropriate disaster prevention, preparedness, response and recovery at local, district and state levels.
Functional lead agencies through which the disaster management functions and responsibilities of the state government are managed and coordinated.
Hazard specific primary agencies, responsible for the management and coordination of combating specific hazards.
Specific-purpose committees, either permanent or temporary, established under the authority of disaster management groups for specific purposes relating to disaster management.

Figure 2.1 Queensland's disaster management arrangements

2.1.2 Disaster Management Process

Local governments – through their respective LDMGs – have primary responsibility to manage a disaster at the community level. Accordingly, they are responsible for the development and implementation of their Local Disaster Management Plan (LDMP).

If local governments identify gaps in their capacity or capability to manage a potential disaster and require additional resources to manage an event, they can request support from their DDMG. This allows for the rapid mobilisation of resources at a local, regional or district level.

If district resources are inadequate or inappropriate, requests for assistance can be passed to the state via the State Disaster Coordination Centre (SDCC).

If state resources prove inadequate or inappropriate, Australian Government support can be sought through the Department of Home Affairs.

2.1.3 Directions about Functions

The Act provides that written directions may be given to disaster management groups about the performance of their functions.

The QDMC Chairperson, the Premier of Queensland, may give written direction to a DDMG about the performance of the DDMG's functions to ensure those functions are performed appropriately. Before giving the direction, the Chairperson must consult with the District Disaster Coordinator (DDC) of the DDMG. It is the responsibility of the DDMG to comply with the direction.

The DDC of a DDMG may give an LDMG from within the district a written direction to ensure the performance of the LDMG's functions after consultation with the Chairperson of the LDMG. It is the responsibility of the LDMG to comply with the direction.

2.2 Queensland Disaster Management Training Framework

Disaster management training is an essential means for agencies to develop and maintain their disaster management capabilities and capacity. Training and education is important in ensuring all agencies within Queensland’s disaster management arrangements can seamlessly integrate, cooperate and contribute to effective and coordinated disaster operations.

Section 16A of the Act provides a legislative requirement for the Commissioner, QFES to ensure that persons involved in disaster operations are appropriately trained to maintain or enhance capability under Queensland’s disaster management arrangements. It is also the responsibility of all stakeholders with disaster management and disaster operations roles to undertake the training relevant to their role as outlined in the Queensland Disaster Management Training Framework (QDMTF).

The QDMTF outlines the core training courses and inductions relevant to the key disaster management stakeholders to support the effective performance of their role.

Each disaster management group should regularly assess training needs and develop a training program in consultation with their regional QFES Emergency Management Coordinator (EMC).

H.1.027 Queensland Disaster Management Training Framework

2.3 Local level - Local Government

Queensland is divided into 77 LGAs and one town authority. Local governments are primarily responsible for managing disaster events in their LGAs. They are ideally placed to provide specific disaster management at the community level given their knowledge and understanding of local social, environmental and economic issues. They achieve coordinated and effective strategies to manage potential vulnerabilities and respond to disasters through their LDMG.

MAP.1.050 Queensland Local Government Areas - District Map

2.3.1 Responsibilities of local governments

Responsibilities of local governments are detailed in sections 29, 30, 33, 34, 35, 37, 57, 59 and 60 of the Act and section 5 and 10 of the Regulation.

2.3.2 Functions of local governments

Section 80 of the Act outlines the functions of a local government in disaster management.

A 'disaster response capability' for local government means the ability to provide equipment and a suitable number of persons, using the resources available, to effectively manage or help another entity to manage an emergency situation or a disaster in the local government area.

D.1.038 Local Disaster Management Groups List

2.3.3 Local Disaster Management Group

LDMGs are established by local governments to support and coordinate disaster management activities for their respective LGAs.

For more information regarding LDMG responsibilities, business and meetings refer to Toolkit items listed at the end of Section 2.3.5 of this Chapter.

2.3.3.1 Local Disaster Management Group Membership

The mayor, or another councillor of the local government, is appointed as the Chairperson of the LDMG. Membership of the LDMG is outlined in the Regulation and generally comprises of:

Chairperson, must be a councillor
Deputy Chairperson
Local Disaster Coordinator (LDC)
person nominated by the Commissioner, QFES
other persons, which should include:

council representatives
local emergency services – Queensland Police Service (QPS), Queensland Ambulance Service, QFES
Representatives of functional lead agencies
NGOs such as welfare organisations or community groups
a Local Recovery Coordinator (LRC) also may be appointed.

Appointments under the Act can be made to a person or by position (see s. 24A of the Acts Interpretation Act 1954). It is strongly recommended that appointments be made by position as this eliminates the need for a new appointment when a change in personnel occurs. However, where a position title changes, a new appointment will be required and the new incumbent will need to undertake training under the QDMTF.

Local group members are appointed under section 33 of the Act. LDMG members should have the necessary expertise or experience and delegated authority to assist with a comprehensive, all hazards, all agencies approach to disaster management.

Where a person or position undertakes a dual function as an LDMG and a DDMG member, appointing a deputy to both positions is recommended.

In addition to the legislated members of the group, LDMGs may appoint members or advisors to ensure adequate capability and capacity for specialist functions of disaster management.

2.3.3.2 Functions of Local Disaster Management Groups

The functions of an LDMG are outlined in section 30 of the Act.

2.3.3.3 Responsibilities of Local Disaster Management Groups

In addition to the legislated functions, it is recommended LDMGs consider:

Establishing terms of reference to guide activities.

Creating permanent or temporary sub-groups, as required to assist the group with its business. Examples of sub-groups include:

Local Recovery Group (LRG)
an evacuation project team
a cyclone shelter operations management group
a sub-group formed to deal with a particular issue relating to that LGA.

When this occurs:

it is recommended that terms of reference are implemented to give clear guidance on the establishment, role and function, required outcomes and conduct of business of the sub-group
it is also recommended that any decisions made or actions taken by or on behalf of these sub-groups be endorsed by the LDMG.

Appointing a secretariat to carry out the administrative business duties and official records management on behalf of the group.

Establishing a Local Disaster Coordination Centre (LDCC) to operationalise LDMG decisions and plan and implement strategies and activities on behalf of the LDMG during disaster operations. It is recommended that centres have the capability to:

receive and manage information from the public and other source
coordinate local resources and information
identify tasks where extra resources are needed
pass information and requests for assistance to the District Disaster Coordination Centre (DDCC).

For more information refer to Chapter 4, section 4.4.2: Disaster coordination centres.

Meeting at least once each six months at the times and places decided by the LDMG Chairperson. These meetings must meet quorum requirements as outlined in section 13 of the Regulation.

Completing a status report at the end of each financial year and provide the completed report to the relevant DDC for inclusion, where relevant, in the DDMG and QDMC annual reports. LDMGs may contact their QFES EMC for advice and assistance in the completion of the annual status report.

Ensuring recovery arrangements are, in consultation with the community, prepared for, planned for and implemented to support the relevant LGA.

2.3.4 Local Disaster Coordinator

As per section 35 of the Act, a LDC is appointed by the LDMG Chairperson to manage disaster operations for the LGA. The functions of the LDC are outlined in section 36 of the Act.

2.3.5 Local Recovery Coordinator

The LDMG may determine it is necessary to appoint a LRC to coordinate recovery at the local level.

The LRC is appointed by the LDMG Chairperson, after consultation with the State Recovery Policy and Planning Coordinator (SRPPC) and the State Recovery Coordinator (SRC), if appointed. The appointment of the LRC may be pre-emptive in anticipation of expected disaster impacts.

It is recommended the person appointed as the LRC, where possible, is not the same person appointed as the LDC. If appointed, the LRC and LDC should liaise regularly during disaster operations.

M.1.030 Local Disaster Management Group Responsibilities Manual

T.1.031 Notice of Permanent Appointment of LDMG Chair Person Template

T.1.032 Notice of Change to LDMG Member Template

T.1.033 Agency Nomination of LDMG Member Template

T.1.034 Notice of Appointment of LDMG Member Template

T.1.035 Notice of Temporary Appointment of LDMG Executive Member (otherthan LDC) Template

T.1.037 Notice of Appointment of Local Disaster Coordinator Template

T.1.266 Notice of Local Government Appointment to DDMG Template

M.1.052 Disaster Management Groups Business and Meetings Manual

T.1.053 Ministerial Approval to Combine LDMG Template

T.1.055 Generic LDMG Terms of Reference Template

T.1.056 LDMG Meeting Attendance Sheet Template

T.1.057 Register of LDMG Contact Details Template

T.1.071 LDMG Member Contact Details Template

T.1.058 LDMG Progressive Record of Attendance Template

T.1.059 LDMG Meeting Minutes Template

T.1.060 LDMG Flying Minute Endorsement Template

T.1.062 LDMG Briefing Paper Template

T.1.063 LDMG Meeting Checklist Template

T.1.064 LDMG Sample Meeting Agenda Template

T.1.065 LDMG Resolution Statement Template

T.1.068 LDMG Resolution Register Template

T.1.069 LDMG Correspondence Register Template

T.1.061 LDMG Member Status Report Template

T.1.070 LDMG Annual Disaster Management Status Report Template

L.1.019 Recordkeeping Guidance

2.4 District level

Under Queensland's disaster management arrangements, the state is divided into 22 disaster districts. Each district comprises one or more LGAs.

Each disaster district performs the function of providing coordinated state government support when required and requested by local governments through their LDMGs.

The Act establishes a DDMG for each disaster district. DDMGs are responsible to the state government, through the QDMC, for all aspects of disaster management capabilities and capacity for their district.

MAP.1.050 Queensland Local Government Areas - District Map

D.1.051 District Disaster Management Groups List

2.4.1 District Disaster Management Groups

DDMGs provide whole of government planning and coordination capacity to support local governments in disaster operations and disaster management.

For more information regarding DDMG responsibilities, business and meetings refer to Toolkit items listed at the end of section 2.4.5.3 of this Chapter.

2.4.1.1 Temporary District Disaster Management Groups

Under section 28A of the Act, if a disaster event is likely to happen, is happening or has happened in two or more adjoining disaster districts, the QDMC Chairperson may, after consulting with the Commissioner, QPS, establish a temporary DDMG. The temporary DDMG is responsible for the management of the disaster for the affected districts, as directed by the QDMC Chairperson.

2.4.2 District Disaster Management Group Membership

DDMGs are led by a Chairperson, who is also the DDC, appointed by the Commissioner, QPS. DDMGs are comprised predominantly of representatives of state government agencies responsible for the hazards and functions of disaster management outlined in the SDMP and representatives from local government within the district. DDMGs coordinate district level whole of government support and provide resource gap assistance to disaster affected communities, when requested by LDMGs.

DDMG members are appointed in accordance with sections 24, 25 and 27 of the Act.

DDMG representatives should have the necessary expertise or experience in assisting with a comprehensive, all hazards, all agencies approach to disaster management. They must actively participate in the DDMG to ensure its legislative functions are fulfilled, including performing functional lead agency roles across a district when appropriate.

Membership may be formed based on the individual needs of the DDMG and reviewed annually and should include:

Chairperson/DDC
Deputy Chairperson
Executive Officer (XO)
representatives of each relevant local government in the disaster district
representatives of state government agencies
other members as deemed applicable, such as individuals, representatives of government owned corporations, essential services and NGOs, as identified in the DDMP.

Further information about the appointment and responsibilities of the Chairperson, Deputy Chairperson and XO can be found in Chapter 2, section 2.4.5: Roles within District Disaster Management Groups.

Full membership details, appointment requirements and responsibilities of these positions are provided in the toolkit.

2.4.3 Functions of District Disaster Management Groups

The functions of a DDMG are outlined in section 23 of the Act.

2.4.3.1 Functions of a temporary District Disaster Management Group

The functions, establishment and membership of temporary DDMGs are outlined in sections 28A, 28B, 28C, 28D, 28E and 28F of the Act.

2.4.3.2 Functional Committees

It is recommended that DDMGs establish functional committees to address specific issues associated with the delivery of disaster management functions within their particular district, based on requirements of the district and the functional lead agency.

Examples of possible committees include human and social recovery committees.

When functional committees are established, DDMGs are strongly encouraged to consider committee membership and the requirements for development of a supporting functional plan. Again, the requirements of the responsible state government agency will also need to be considered.

Information regarding the functional lead agencies responsible for each of the functions of disaster management is outlined in the SDMP.

2.4.3.3 Other Committees

DDMGs may need to create permanent or temporary committees to address specific issues within their district. Examples are:

District Recovery Committee
Exercise Management Committee.

The creation of a committee should be passed as a DDMG meeting resolution. Terms of reference are required to give clear guidance on the committee's establishment, functions and role, required outcomes and conduct of business.

2.4.3.4 Reporting Requirements

A committee, whether permanent or temporary, must provide regular written status reports at each DDMG meeting.

2.4.4 Responsibilities of District Disaster Management Groups

In addition to the legislated functions, DDMGs have the following responsibilities:

Establish terms of reference to guide activities.
Prepare the DDMG Annual Report for inclusion in the QDMC Annual Report.

Appoint a secretariat to carry out the administrative business duties and official records management on behalf of the group.
Establish and review communications with the relevant district and local groups.
Establish DDCCs to support the DDMG in providing state level support to local government. The DDCC implements decisions of the DDC and DDMG and coordinates state and Australian government resources in support of LDMGs. DDCCs should have the capability to:

receive and manage information from LDCCs and the SDCC
identify tasks where extra resources are needed
pass information and requests for assistance between the LDCC and the SDCC.

Ensure that recovery arrangements are prepared for, planned for, and implemented to support the LDMGs within their district.

2.4.5 Roles within District Disaster Management Groups

2.4.5.1 Chairperson/District Disaster Coordinator

In accordance with section 25(1) (a) of the Act, the Commissioner, QPS appoints the Chairpersons – by position – for each disaster district.

The DDMG Chairperson is also the DDC, in accordance with section 25A of the Act.

The organisational position not the individual person is the appointee to the role of DDC. Accordingly, when an individual is acting in the appointed organisational position, he/she then is the DDC for the period he/she is acting in the organisational position.

For more information regarding the declaring of a disaster situation refer to Chapter 5 Section 5.5.

Responsibilities of the Chairperson/DDC are outlined in sections 26 and 26A of the Act.

A DDC may declare a disaster subject to the approval by the Minister for Fire and Emergency Services and the completion of the approved form and notice of declaration. A declaration of a disaster situation can be made verbally if the DDC is satisfied it is necessary to exercise declared disaster powers under section 64(1)(b) of the Act before an approved form can be obtained and completed. However, the declaration must be recorded on the approved form as soon as possible.

The DDC should be mindful of any emergency situation declarations under the Public Safety Preservation Act 1986 and should liaise with the person acting as forward commander when declaring a disaster situation under the Act.

During a disaster situation, the DDC and other declared disaster officers are provided with additional powers under sections 77-78 of the Act, including the power to direct evacuation.

2.4.5.2 Deputy Chairperson

In accordance with section 25(1) of the Act, the Commissioner, QPS appoints Deputy Chairpersons – by position – for each disaster district.

The Deputy Chairperson is to preside at DDMG meetings in the absence of the Chairperson and it may be appropriate for the Deputy Chairperson to be delegated the responsibilities of the DDC in the absence of the DDC.

2.4.5.3 District Executive Officer

In accordance with section 27 of the Act the Commissioner, QPS appoints – by position – a member of the police service as XO of each DDMG.

A person holding that position must have the appropriate expertise or experience to perform the functions of XO in accordance with section 28 of the Act.

The organisational position not the individual person is the appointee to the role of DDMG XO. Accordingly, when an individual is acting in the appointed organisational position, he/she then is the XO for the period he/she is acting in the organisational position.

M.1.040 District Disaster Management Group Responsibilities Manual

F.1.041 DM13 Authorisation to Appoint a Deputy Form

T.1.043 DDMG Government Department Appointment Notification Template

T.1.045 DDMG Local Government Appointment Notification Template

T.1.046 Notification of Change to DDMG Member Template

T.1.047 Notification of Current DDMG Chairperson/Deputy ChairpersonTemplate

T.1.048 Notification of Current DDMG Executive Officer Template

D.1.263 State Government Member Appointment Process

D.1.262 DDMG Member Appointment Process

T.1.264 DDMG Post Disaster Analysis Report

M.1.052 Disaster Management Groups Business and Meetings Manual

T.1.072 DDMG Flying Minute Template

T.1.073 DDMG Meeting Minutes Template

T.1.074 DDMG Meeting Brief Template

T.1.075 DDMG Attendance Sheet Template

T.1.076 DDMG Progressive Meeting Attendance Sheet Template

T.1.077 DDMG Correspondence Register Template

T.1.078 DDMG Member Status Report Template

T.1.079 DDMG Agenda Template

T.1.080 DDMG Noting Brief Template

T.1.081 DDMG Resolution Statement Template

T.1.257 DDMG Resolution Register

T.1.082 DDMG Extraordinary Meeting Agenda Template

T.1.083 DDMG Member Contact Details Template

T.1.084 DDMG LDMP Legislative Checklist

T.1.085 Register of DDMG Contact Details

T.1.086 DDMG DDMP Legislative Checklist

T.1.087 DDMG Ordinary Meeting Checklist

T.1.089 DDMG Generic Terms of Reference Template

T.1.091 DDMG Annual Report Template

L.1.019 Recordkeeping Guidance

T.1.042 DDMG Establishment of a Temporary Disaster District Group Membership Template

2.5 State level - Queensland Government

Strategic leadership at the state level is provided through the Queensland Disaster Management Committee (QDMC).

Disaster response coordination, including coordinated and efficient deployment of state government resources, is provided through the State Disaster Coordination Group (SDCG) and the State Disaster Coordination Centre (SDCC).

2.5.1 Queensland Disaster Management Committee

The QDMC provides senior strategic leadership in relation to disaster management across all four phases – prevention, preparedness, response and recovery – in Queensland and facilitates communication between the Premier, relevant Ministers and Directors-General before, before, during and after disasters.

2.5.1.1 Functions of the Queensland Disaster Management Committee

The functions of the QDMC are outlined in section 18 of the Act.

2.5.1.2 Queensland Disaster Management Committee membership

Membership of the QDMC is outlined in the Regulation and generally comprises persons prescribed by the Regulation and other persons invited by the Chairperson of the QDMC.

2.5.1.3 Functions of the Queensland Disaster Management Committee Chair and Deputy Chair

The QDMC is chaired by the Premier. The functions of the Chair of the QDMC are:

manage and coordinate the business of the QDMC
ensure, as far as practicable, that the QDMC performs its functions
request Commonwealth Government non-financial assistance.

The Minister who is recognised as the deputy for the Premier is the deputy chairperson of the QDMC. The Deputy Chairperson is to act as Chairperson during a vacancy in the office of the Chairperson or during all periods of absence or inability to perform the functions of the office.

2.5.1.4 Executive Officer, Queensland Disaster Management Committee

The XO of the QDMC is appointed by the Commissioner, QPS to provide support to the QDMC, as directed by the QDMC Chairperson, to help the committee perform its functions including:

providing executive support at meetings of the QDMC
calling meetings of the QDMC
providing any other executive support the Chairperson considers necessary.

2.5.1.5 Queensland Disaster Management Committee Reporting

In accordance with s. 44 of the Act, the QDMC is required to provide a written report regarding disaster management for the state as soon as practicable after the end of each financial year and to publish that report on an appropriate public website.

In preparing its Annual Report, the QDMC is to incorporate issues arising from reports provided by each of the disaster management groups as well as by other state committees.

QDMC Annual Reports are available on the Queensland Government’s Disaster Management website.

2.5.2 Premier of Queensland

The Premier may declare a disaster situation for the state or part of the state.

2.5.3 Minister for Fire and Emergency Services

The Minister for Fire and Emergency Services, as the Minister administering the Act, may declare a disaster situation for the state or part of the state.

2.5.4 State Disaster Coordinator

Under s. 21B(1) of the Act, the Chairperson of the QDMC must appoint a person as the State Disaster Coordinator (SDC) to coordinate disaster operations for the group.

2.5.4.1 Functions of the State Disaster Coordinator

The functions of the SDC are outlined in section 21C of the Act.

2.5.5 State Disaster Coordination Group

The SDCG supports the SDC in areas such as coordinating disaster response operations for the QDMC and ensuring, as far as reasonably practicable, that any strategic decisions by the QDMC about disaster response operations are implemented.

2.5.6 State Disaster Coordination Centre

The SDCC supports the SDC through the coordination of a state level operational response capability during disaster operations. The SDCC also ensures information about an event and associated disaster operations is disseminated to all levels, including the Australian Government.

The SDCC is a permanent facility located at the Emergency Services Complex at Kedron, Brisbane.

The centre operates as the Watch Desk when not activated, and is staffed and maintained in a state of operational readiness by QFES. The QPS Disaster Management Unit and a Bureau of Meteorology (BoM) senior forecaster are permanently situated at the centre. QPS takes operational command of the SDCC upon activation.

During a disaster event, permanent staffing is supplemented by QPS, QFES, Public Safety Business Agency and other state government personnel as well as liaison officers from other state government agencies in accordance with the Queensland Public Service Commission’s “Directive 10/14 – Critical Incident Response and Recovery”.

The SDCC is also supported by NGOs and the Department of Defence during operations. The level of support is determined by the scale of the event as outlined in the indicative levels of activation for response arrangements in the SDMP.

2.5.7 Watch Desk

The Watch Desk provides a 24/7 emergency management capability for the Queensland Government and other disaster management stakeholders through monitoring, collecting, collating and analysing a wide range of emergency management information from diverse sources to notify, inform and warn key stakeholders. The Watch Desk role also includes the coordination of State Emergency Service (SES) tasks and acts as the single point of dissemination of Emergency Alert (EA) campaigns in Queensland.

RG.1.092 SDCC Watch Desk Reference Guide

2.5.8 Emergency Management Coordinator

EMCs are responsible for engaging with local governments, agencies, authorities, communities and community groups to build local disaster management capability and capacity. This is primarily achieved by incorporating risk management principles and practices in the delivery of emergency management planning, review and assessments, the development and maintenance of disaster management plans delivery of the QDMTF and other emergency management training to relevant stakeholders.

RG.1.093 Emergency Management Coordinators Reference Guide

2.5.9 Disaster management functional lead agencies

The SDMP provides information on the functional lead agency for each disaster management function. Planning assistance can be sourced, if required, through members from these agencies on district groups.

The lead agencies and their responsibilities are detailed in Appendix C of the SDMP, which is available at the Queensland Government’s Disaster Management website.

2.5.10 Leadership Board Sub-committee (Recovery)

The Leadership Board Sub-committee (Recovery) oversees the implementation of state disaster specific recovery plans and develops strategies to manage risks that may affect recovery operations.

2.5.10.1 Functions of the Leadership Board Sub-committee (Recovery)

The Leadership Board Sub-Committee:

provides oversight on the planning and implementation of the state's whole of community recovery activities regarding the disaster, across the functional lines of recovery, as detailed in the disaster specific recovery plans
provides the mechanism to manage and coordinate the recovery activities of FRGs, including cross-cutting issues
identifies issues for resilience and recovery and canvases policy solutions across the FRGs that are not in the state level recovery plan
pre-empts and raises emerging issues highlighted by the FRGs and/or the SRC and escalates to the Leadership Board and/or QDMC through the SRPPC for action, as required
provides assurance and monitoring of recovery efforts for the impacts of the disaster
reports on recovery activities to the QDMC
ensures FRGs contribute actively to the development of the recovery plan in partnership with the QRA.

2.5.11 State Recovery Policy and Planning Coordinator

The Chief Executive Officer of QRA is the SRPPC, as appointed by the Premier.

2.5.11.1 Functions of the State Recovery Policy and Planning Coordinator

The SRPPC:

fulfils the role of the standing State Recovery Coordinator (SRC)
engages collaboratively with all stakeholders to ensure recovery activities provide the best outcomes for the people of Queensland in terms of timeliness, quality of service and advice to government
ensures better preparedness of government entities and the community for recovery operations
leads recovery planning, policy and recovery capability development to ensure effective recovery operations and coordination
oversees the effective delivery of relief and immediate recovery operations until a SRC is appointed
facilitates the provision of local recovery planning and operations support when requested by the impacted LDMGs/LRGs
ensures continual improvements in disaster recovery policies, procedures and planning
oversees state level preparedness for recovery operations
manages and resources a newly appointed SRC and is available for consultation with the SRC/Deputy SRCs throughout the duration of their appointment
attends QDMC and SDCG meetings, and liaises with the SDC in the lead up to a disaster (if possible) and during disaster response operations
works with the SDC to ensure a smooth transition from response operations to recovery operations
works with stakeholders to collaboratively implement the delivery of resilience building measures and ongoing resilience continuous improvement
ensures a review of disaster recovery operations is conducted after an event.

2.5.12 State Recovery Coordinator

The appointment of a SRC is legislated under section 21D of the Act. This appointment must be in writing and may only be terminated in writing by the QDMC Chairperson.

Following severe and/or widespread events, multiple recovery coordinators may be appointed for a disaster event if, after consulting with the SRPPC, the QDMC Chairperson is satisfied the appointments are necessary.

2.5.12.1 Functions of the State Recovery Coordinator

The functions of the SRC are outlined in section 21E of the Act.

L.1.094 State Recovery Coordinator

2.5.13 Functional Recovery Groups

Effective recovery from a disaster requires an integrated, multi-disciplinary approach to multiple factors including needs analysis, consequence management, community engagement, planning and service delivery. The FRGs provide a platform to coordinate the efforts by all agencies involved in a recovery operation.

2.5.13.1 Membership

At the state level, FRGs:

are chaired by the Directors-General of those agencies with lead functional recovery responsibilities:

Human and Social – Director-General, Department of Communities, Disability Services and Seniors

Economic – Director-General, Department of State Development, Manufacturing, Infrastructure and Planning

Environment – Director-General, Department of Environment and Science

Building – Director-General, Department of Housing and Public Works

Roads and Transport – Director-General, Department of Transport and Main Roads

include representatives from state and local governments, the not-for-profit sector, utilities sector and the private sector (membership is flexible and dynamic to support recovery operations specific to a disaster, based on impact and needs assessments).

2.5.13.2 Functions

The functions of FRGs are:

advise stakeholders and recovery partners at all levels when FRGs have activated
develop a reporting structure with the Local and District Recovery Groups and actively share information including meeting minutes/reports
lead and coordinate the planning (based on community identified recovery needs) and implementation of lead agency functions across the functional lines of recovery
contribute to the development of event specific state recovery plans
report through the Leadership Board, or the Leadership Board Sub- committee (Recovery) when established, to the QDMC Chair or delegated Minister
report in to or participate in the Local Recovery Groups and provide assistance in the development and implementation of Local Recovery Pans, when required. This participation may be undertaken through a district level delegate from the lead functional agency.

RG.1.234 Local or District Recovery Group Structure Reference Guide

2.6 Relationships between disaster management groups

2.6.1 Relationship between Local and District Disaster Management Groups

DDMGs support LDMGs by providing a whole of government planning and coordination capability for disaster management.

This includes:

deciding on how to best allocate state resources in the support of local governments undertaking disaster management activities
regularly reviewing and assessing disaster management by LDMGs in the district.

Section 47 of the Act enables the DDC of a DDMG to give a LDMG a written direction about the performance of the LDMG's functions (this direction may be given verbally when it is not practical to give a written direction). The DDC must consult with the Chairperson of the local group before giving the direction.

During operations the LDMG may approach the DDMG:

for requests for assistance
to recommend that a directed evacuation is required based on situation awareness

Typically this contact is a formal request from the LDCC to the DDCC.

2.6.2 Relationship- between the DDMG and the QDMC

The QDMC provides disaster management strategic policy and direction to DDMGs and LDMGs to ensure relevant, best practice and coordinated disaster planning, disaster mitigation, response and recovery are conducted at all levels within the disaster management arrangements. Formally, this direction occurs primarily through the SPS, the SDMP and disaster management guidelines.

Section 46 of the Act enables the chair of the QDMC to give a DDMG a written direction about the performance of the DDMG's functions (this direction may be given verbally when it is not practical to give written direction). The QDMC must consult with the Chairperson/DDC of the district group before giving the direction.

The DDMG reports its normal business activities to the QDMC on an annual basis through the DDMG Annual Report.

During disaster operations, the QDMC will provide strategic direction through the SDC for disaster response operations and the SRC, if they are appointed, for disaster recovery operations.

During operations the DDMG may approach the QDMC for:

requests for assistance
ministerial approval of a declaration of a disaster situation
ministerial activation of funding arrangements through Natural Disaster Relief and Recovery Arrangements (NDRRA) or State Disaster Relief Arrangements (SDRA).

Typically this contact is a formal request from the DDC to the SDC.

2.7 Inspector-General Emergency Management

Part 1A of the Act, establishes the Inspector-General Emergency Management (IGEM) and Office of the IGEM. The priority for the Office of the IGEM is to facilitate improvements to Queensland’s disaster management arrangements to enable confidence in the system and enhance public safety outcomes. The functions of the Office of the IGEM are detailed in section 16C of the Act.

The Emergency Management Assurance Framework (EMAF), developed by the Office of the IGEM in partnership with disaster management practitioners, provides the foundation for guiding and supporting the continuous improvement of entities’ programs across all phases of disaster management. The EMAF also provides the structure and mechanism for reviewing and assessing the effectiveness of disaster management arrangements.

The EMAF is comprised of Principles, the Standard for Disaster Management in Queensland (the Standard) and Assurance Activities.

2.7.1 Assurance

Assurance activities are undertaken to assess performance against the Standard, legislation, policy, good practice guidelines and entity performance indicators to provide a level of assurance of disaster management effectiveness. Assurance activities are structured into three tiers reflecting different levels of independence, depth, scope and rigour. These tiers provide the basis for monitoring and assessing individual and collective performance across disaster management.

L.1.005 Emergency Management Assurance Framework

2.8 National level - Australian Government

At an Australian Government level, the Department of Home Affairs, through Emergency Management Australia, is the responsible agency for coordinating assistance to states and territories through the Crisis Coordination Centre (CCC).

The Department of Home Affairs:

delivers programs and policies that maintain and strengthen Australia's national security and emergency management procedures
continues to establish, fund and support several capability development activities, often in partnership with the states and territories (the goal of capability development is to enhance national emergency management capabilities through the identification of gaps and the development then implementation of Australian Government initiatives to address these gaps)
maintains response plans to provide Australian Government non-financial assistance to states and territories in response to an emergency.

2.8.1 Australian Government Crisis Coordination Centre

The CCC is the Australian Government's all hazards, 24/7 facility with representatives from multiple federal departments, including the Bureau of Meteorology and Geoscience Australia.

The centre provides the whole of government picture to decision makers during times of crisis, whether it is a natural disaster or security incident. The CCC coordinates physical Australian Government assistance during disasters and emergencies and also manages the National Security Hotline, the single point of contact for the public to report suspicious activity.

3 Prevention

In accordance with the guiding principles of the Act, preventative measures reduce the likelihood of a disaster event occurring or the severity of an event should it eventuate.

Prevention is defined as regulatory and physical measures to ensure that emergencies are prevented, or their effects mitigated and mitigation is defined as measures taken in advance of a disaster aimed at decreasing or eliminating its impact on society and environment.

The implementation of proactive, targeted prevention and mitigation strategies designed to address likely risk factors, the vulnerability of the population and reduce or eliminate the possible impact of disasters ultimately ensures safer, more resilient and sustainable communities.

The preparedness and resilience of communities involves all individuals sharing responsibility. Disaster resilience is significantly increased by proactive planning and preparation for the protection of life, property and the environment through an awareness of hazards, associated risks and local disaster management arrangements.

3.1 Resilience

The frequency and intensity of natural disasters has increased in recent years, with further increases predicted into the future. Queensland is the most disaster impacted state in Australia. By necessity, Queenslanders are renowned for their resilience and ability to adapt, with a strong community spirit that supports those in need to withstand and recover from disasters.

In the context of disaster management, it is suitable to refer to resilience as:

A system or community's ability to rapidly accommodate and recover from the impacts of hazards, restore essential structures and desired functionality, and adapt to new circumstances.

Queensland Strategy for Disaster Resilience 2017

Disaster resilient communities are those that work together to understand and manage their risks. Disaster resilience is a shared responsibility of all sectors, including all levels of government, business, NGOs and individuals.

The Queensland Strategy for Disaster Resilience is the guiding instrument for realising the vision to make Queensland the most disaster resilient state in Australia and is underpinned by four key objectives:

Queenslanders understand their disaster risk
strengthened disaster risk management
Queenslanders are invested in disaster risk reduction
continuous improvement in disaster preparedness.

L.1.100 National Strategy for Disaster Resilience

L.1.098 Queensland Strategy for Disaster Resilience 2017

3.2 Disaster risk management

Local and district groups and the state group within Queensland's disaster management arrangements hold responsibility for managing disaster risk, for all hazards, across the four phases of a comprehensive approach: prevention, preparedness, response and recovery. This is in accordance with the main objects and principles of the Act.

Risk management is a proactive process that forms the basis for disaster management planning and helps those who hold disaster management responsibilities to provide effective, relevant and informed services to communities.

To ensure effective disaster risk management, groups at all levels are encouraged to:

undertake risk assessment and management using an approved, recognised methodology that considers all reasonably foreseeable hazards, both natural and human-made
support risk assessment and management with scientific data, the use of geospatial information systems, and analysis of historical and/or projected impacts to identify area specific exposures and vulnerabilities
identify residual risk (the risk that remains in unmanaged form, even if controls are in place) from their risk management process and reach agreement between the levels of Queensland's disaster management arrangements to either accept, mitigate or transfer that risk
clearly document and make publicly available hazard identification and risk assessments to stakeholders and community members, and review them regularly
use risk assessments to inform mitigation, preparedness, continuity, response and recovery planning processes and documentation.

3.2.1 Understanding disaster risk

The United Nations, through the Sendai Framework for Disaster Risk Reduction 2015-2030, notes that understanding disaster risk is the first priority toward disaster risk reduction.

Hazard identification, the analysis of exposure and vulnerability and the subsequent identification of risk through this process is the cornerstone of understanding disaster risk and forms the basis for effective risk-based planning.

It is advisable that the identification of risk be regularly reviewed to ensure:

the most current information is used to identify exposures and vulnerabilities
there is a clear line of sight from the identified vulnerabilities to the risks the vulnerabilities specifically create to the plans that have been developed to directly mitigate the risks.

The Queensland Emergency Risk Management Framework (QERMF) was developed to enable such a literal process at all levels of Queensland's disaster management arrangements.

3.3 Prevention, mitigation and disaster risk reduction

Prevention and mitigation strategies should work towards reducing the financial and social costs to communities over time, improving the built environment, and reducing the impact on, and damage to, the environment.

Investment in disaster risk prevention and reduction enhances the economic, social, health and cultural resilience of people, communities, countries and their assets, as well as the environment.

The effective prevention of disaster events includes multiple strategies to reduce or remove the impact of hazards and increase the resilience of the community. Disaster managers at all levels of Queensland's disaster management arrangements are responsible for using a proven risk management process to identify prevention and mitigation options.

All mitigation measures are important as they save lives and reduce the cost of response to and recovery of the community.

In Queensland, multiple publications prepared by state government agencies for local governments, businesses and individuals assist and enhance planning and the development of prevention and mitigation strategies to reduce disaster risk.

L.1.105 State Planning Policy 2017

L.1.106 Queensland Betterment Fund

L.1.108 Rebuilding a stronger, more resilient Queensland

L.1.109 Planning for stronger more resilient floodplains

L.1.110 Sendai Framework for Disaster Risk Reduction

L.1.111 2017-19 Local Government Grants and Subsidies Program

L.1.112 2017-19 Works for Queensland Program

L.1.267 Strategic Policy Framework for Riverine Flood Risk Management and Community Resilience

3.4 Mitigation and improvement strategies

The development of mitigation strategies should flow from the risk management process with clear links to functional lead agencies, as identified in the SDMP, to ensure each risk and strategy is coordinated and managed by the responsible agency.

Prevention and mitigation strategies should be based on the risk assessment and can be considered in relation to:

land use planning and building codes
essential infrastructure
structural works
landscape and environment.

Examples of mitigation strategies include:

hazard specific control activities such as flood levees or bushfire mitigation strategies
design improvements to infrastructure or services
land use planning and design decisions that avoid developments and community infrastructure in areas prone to hazards
community awareness campaigns to increase knowledge of how to prepare for disaster events
community education programs to build knowledge of the appropriate actions to prepare for and respond to a disaster event
capital works such as levee bank construction to reduce the impacts of flooding
resilience activities including partnership building and engagement between sectors
annual programs (e.g. vegetation management around essential services and essential infrastructure such as power lines).

The concept of betterment, often considered predominantly within post-disaster recovery and reconstruction, should also form a key consideration pre-disaster through proactive mitigation strategies which aim to enhance and harden infrastructure to a more disaster resilient standard.

For more information refer to Chapter 7: Financial arrangements.

3.4.1 Land use planning and building codes

Land use planning can be an effective method to reduce the impact of natural hazards and, where possible, avoid risk to life, property and environmental systems from natural hazards.

The State Planning Policy (SPP) is a key component of Queensland’s planning system. The SPP expresses the state’s interests in land use planning and development, including the avoidance or mitigation of the risks associated with natural hazards. Promoting this avoidance or mitigation through plan making and development decisions of state and local government can significantly reduce the likelihood and severity of impacts of certain natural hazards including flood, bushfire, landslide, storm tide inundation and coastal erosion.

Regulatory frameworks for buildings (e.g. Acts, Regulations, Codes) ensure buildings and infrastructure are designed and constructed to standards that minimise the likelihood of injury during a disaster event.

Most levels of government implement requirements that control land use planning and building design and construction and reduce risks from natural hazards.

L.1.113 Planning Act 2016

L.1.268 Building Act 1975

L.1.114 National Construction Code

L.1.115 Queensland Development Code

L.1.105 State Planning Policy 2017

L.1.116 Local Government Planning Instruments

L.1.117 Planning Safer Communities Land Use Planning for Natural Hazards – Manual 7

3.4.2 Essential Infrastructure

A community's social and economic wellbeing relies upon the continuity of essential services provided by critical infrastructure. This critical infrastructure supports the most basic needs: safe drinking water, food, reliable transport, accessible public health services, energy for homes and industry, access to banking, finance and government services, and communications networks to connect us socially and in business.

Critical infrastructure includes those physical facilities, supply chains, systems, assets, information technologies and communication networks which, if destroyed, degraded or rendered unavailable for an extended period, would significantly affect the social or economic wellbeing of the community.

The importance of the reliability of this infrastructure highlights the need to build and strengthen its resilience. The United Nations Office for Disaster Risk Reduction (UNISDR) describes resilience as the ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions.

Mitigating the effects of disaster events and ensuring the reliability of essential services and infrastructure requires a variety of strategies including compliance with building planning regulations, land use planning and an all hazards approach to risk identification and management.

Strong networks between infrastructure owner/operators, local and state government agencies and communities are key for critical infrastructure resilience.

L.1.117 Planning Safer Communities Land Use Planning for Natural Hazards – Manual 7

L.1.118 Critical Infrastructure Resilience Strategy Plan

L.1.256 Critical Infrastructure Emergency Risk Management and Assurance Handbook

3.4.3 Structural Works

Structural disaster mitigation strategies involve the application of engineered solutions as disaster mitigation strategies including physical structures which are constructed or modified to reduce or eliminate disaster impacts.

Structural works to mitigate natural hazards can include but are not limited to levees, rock walls, drainage works, improved road infrastructure and flood mitigation dams. Where structural mitigation strategies are implemented, asset owners need to consider funding to support ongoing operation and maintenance. The community should also be educated on the limits of structural mitigation works and the appropriate action required should breaches occur.

The application of structural works as a form of mitigation is not necessarily the most cost-effective approach and may transfer the problem. Therefore structural works form one option in a suite of mitigation strategies including natural landscape and environmental approaches.

L.1.004 State Disaster Management Plan 2017

L.1.119 Queensland Flood Mapping Program, Flood mapping implementation kit

L.1.120 Natural assets for flood and cyclone resilience

L.1.267 Strategic Policy Framework for Riverine Flood Risk Management and Community Resilience

3.4.4 Landscape and environment

The appropriate management and protection of landscapes and the environment is important. All organisations, including governments at all levels, must consider the effects of development relative to the landscape and environment.

Climate change predictions should be considered when planning for mitigation of natural hazards. Climate change is predicted to influence the magnitude, frequency and severity of natural disaster events including increasing sea levels, intensity of cyclones and storms and other changes to weather patterns. In Queensland, low lying coastal areas and associated coastal environments and landscapes will be most vulnerable to the impacts of these hazards.

Assessment of coastal based development is undertaken to ensure development protects and conserves coastal resources. This also enhances the resilience of coastal communities.

L.1.105 State Planning Policy 2017

L.1.004 State Disaster Management Plan 2017

L.1.120 Natural assets for flood and cyclone resilience

L.1.113 Planning Act 2016

3.5 Queensland Emergency Risk Framework (QERMF)

The QERMF was endorsed by the QDMC as Queensland's approach to disaster risk management in August 2017 and complements existing and widely recognised risk management standards. Disaster management stakeholders may use this approach in conducting their risk assessments.

The QERMF provides a risk assessment methodology that can be used within disaster management planning at all levels of Queensland's disaster management arrangements. The process applies a standardised and internationally recognised approach to the prioritisation, mitigation and management of risk. This includes the consistent identification and passage of residual risk between levels of Queensland's disaster management arrangements to directly inform planning and resource allocation and to promote active communication, cooperation and coordination.

The successful foundation for disaster risk management lies in clearly identifying and understanding the level of exposure and vulnerability to a community and its assets against particular hazards. Accepted definitions of these three key concepts are:

Hazard – a source of potential harm or a situation with a potential to cause loss.[1]
Exposure – the elements within a given area that have been, or could be, subject to the impact of a particular hazard. Exposure is also sometimes referred to as the 'elements at risk'.3
Vulnerability – the characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard.[2]

The QERMF approach integrates a range of assessment elements to assist in risk-based planning by:

evaluating the effect of a hazard manifesting, based on the assessment of the severity of exposure and the level of vulnerability
informing risk prioritisation, treatment, resource allocation and planning, and measuring this against the capability and capacity to manage the identified vulnerabilities.

The model shown in Figure 3.1 presents the four clear steps to ensuring the identification, analysis and management of risk. Once the strategies have been identified, planned or put into place, it is important then to consider the residual risk.

Figure 3.1 Queensland Emergency Risk Management Framework

3.5.1 Residual risk and risk-based planning

One of the key features of the QERMF within Queensland’s disaster management arrangements is the passage of residual risk from local governments to disaster districts to the state. This is shown in Figure 3.2.

As per the Act, local governments are responsible for disaster planning and operations within their area, with support provided from the district, state and national levels as requested.

The provision of support to local governments – and planning for it – depends on a clear understanding of what aspects of risk mitigation may be beyond their capability (ability to achieve a specific and desired effect either in preparation or response) and capacity (how long the capability can effectively be sustained).

Active, clear communication of residual risk becomes pivotal when multiple LGAs are affected by the same or similar risks and/or event and require support in a compressed timeframe, as this has implications for the prioritisation and mobilisation of limited resources.

The QERMF informs risk-based planning by shaping the focus of risk management to a fit-for-purpose approach to manage identified risk. To achieve this, the process ensures four key outcomes:

shifts risk assessment and management from a 'one size fits all' approach to a tailored methodology that prioritises local characteristics
embeds risk identification, assessment and management in proven, consistent, science-based methodologies that can be applied consistently across local, district and state levels
allows clarity and transparency in communication and decision-making at all levels of Queensland's disaster management arrangements
improves the identification of an area's capability and capacity to manage the disaster risks within that area, thereby informing resource planning for Queensland's disaster management arrangements.

Figure 3.2 Risk Based Planning Equation

This in turn will create multiple benefits, including:

improved risk governance through the strengthening of transparency and accountability in the acceptance, mitigation and/or transfer of residual risk between and across the three levels of Queensland's disaster management arrangements
specific areas can prioritise their resources, based on localised assessed risks
robust, scientifically-based risk assessments can be used for applications for resources and funding towards mitigation strategies and betterment projects
all levels of government and community will have greater assurance through and confidence in scientifically underpinned risk-based planning
stakeholders will have improved confidence in state level coordination and support across all levels of Queensland's disaster management arrangements, supported by state government guidance and prioritisation of risk
disaster management networks will be strengthened and better aligned.

A full risk assessment or a review of existing risk assessments should form part of annual disaster management planning and reviews.

3.5.2 Alignment between the QERMF and situational awareness

QERMF risk assessments use scientific hazard data, mapping and modelling combined with local knowledge to identify exposures, vulnerabilities and risk when specific hazards manifest. This includes historical analysis as well as climate science projections to cover the spectrum of most likely to credible worst case scenarios using geospatial intelligence.

The risk-based plans and geospatial intelligence developed in accordance with the QERMF assessments amount to what is referred to in planning methodology as deliberate planning (discussed further in Chapter 4, section 4.3: Planning).

The information contained within QERMF risk assessments is directly useful for pre-impact analysis in the face of an impending and/or imminent disaster event. The characteristics and hazard data of the event itself, including the exposures, vulnerabilities and risks previously identified in assessments, can be compared and contrasted against the manifesting event to proactively develop situation awareness and identify critical focal points to monitor. Situation awareness plays a critical role in planning and decision making, particularly in complex and dynamic environments.

Situation awareness is defined as: the perception of key elements in the environment within a volume of time and space, the comprehension of their meaning and the projection of their status into the near future. The assessment process leading to situation awareness allows decision makers to:

identify and focus on the most important elements of a current or emerging event
understand why those elements are so important in the particular area of interest
project their status into the future to predict what may happen in order to plan, prioritise and take decision action if required.

The QERMF assessments and geospatial intelligence when shared across all levels of QDMA enable situation awareness to be more rapidly acquired. This is due to the ey elements, exposures and potential vulnerabilities of the area of interest already being identified which can lead to a reduction in the requests for – and the subsequent workload in providing – broad information requests from state to local levels during disaster events.

Links between the three key steps in identifying risk and the three steps involved in developing situational awareness are shown in Figure 3.3.

Figure 3.3 Identify Risk and Situational Awareness Processes

3.5.3 QERMF risk-based planning resilience

The QERMF risk-based planning methodology directly contributes to the implementation of the Queensland Strategy for Disaster Resilience and aligns with its four guiding principles:

shared responsibility
an integrated risk-based approach
evidence-based decision making
continual learning.

Statewide Natural Disaster Risk Assessment

L.1.098 Queensland Strategy for Disaster Resilience

H.1.102 Queensland Emergency Risk Management Framework – Risk Assessment Process Handbook

4 Preparedness

4.1 Preparedness arrangements

Coordinated action is essential when preparing for a disaster. This includes the development of plans or arrangements based on risk assessments and spans the full spectrum of disaster management phases: prevention, preparedness, response and recovery.

Local governments, disaster districts and the state prepare for disasters through a continuous cycle of risk management, planning, coordinating, training, equipping, exercising, evaluating and taking corrective action to ensure the effective coordination and response during disasters. Planning must occur both as core business and during disaster events.

Effective disaster management planning for all hazards is a key element of being prepared. Disaster management planning establishes community networks and arrangements to reduce risks related to disaster preparation, response and recovery. Disaster management plans allow all disaster management stakeholders to understand their roles, responsibilities, capability and capacity when responding to an event.

Key considerations for disaster management planning are detailed in this chapter to ensure:

understanding of hazard exposures, vulnerabilities and triggers
community awareness, education, engagement, information and warnings
collaboration
information sharing
interoperability and capability development.

Figure 4.1 The above figure illustrates the comprehensive disaster management planning approach

4.2 Plans within the disaster management environment

4.2.1 State Disaster Management Plan

The SDMP describes Queensland’s disaster management arrangements, through which the guiding principles and objectives of the Act and the Standard are implemented.

All disaster events in Queensland, whether natural or caused by human acts, should be managed in accordance with the SDMP. The plan is consistent with the Standard and this Guideline as per section 50 of the Act and is supported by supplementary hazard-specific plans and functional plans.

The Queensland Recovery Plan is a Sub-plan to the SDMP.

L.1.004 State Disaster Management Plan 2017

L.1.261 Queensland Recovery Plan

4.2.2 District Disaster Management Plan

In accordance with section 53 of the Act, DDMGs must prepare a DDMP for disaster management in the disaster district. DDMPs detail the arrangements within the disaster district to provide whole of government planning and coordination capability to support local governments in disaster management.

A DDMP should consider the LDMPs in the district to ensure the potential hazards and risks relevant to that area are incorporated. The plan should outline steps to mitigate the potential risks as well as identify appropriate response and recovery strategies

4.2.3 Local Disaster Management Plan

In accordance with section 57 of the Act, local governments must prepare an LDMP for disaster management in their LGA.

The development of a LDMP should be based on a comprehensive, all hazards approach to disaster management which incorporates all aspects of PPRR and specific provisions under sections 57 and 58 of the Act. It should outline steps to mitigate the potential risks as well as identify appropriate response and recovery strategies.

4.2.4 Sub-plans

Sub-plans sit within the LDMPs or DDMPs. They address specific vulnerabilities to the area, identified during the risk assessment. Sub-plans could include:

Communication plan
Resupply plan
Evacuation plan
Transport plan
Recovery plan.

4.2.5 Business Continuity Plan

Business continuity planning (BCP) enhances community resilience by ensuring disaster management stakeholders (government, NGOs and businesses) can continue their core business following any critical incident or disruption.

The process of BCP assists organisations to:

stabilise disruptive effects to service delivery during events
identify, prevent and manage risks
adopt an all hazards approach
expedite response and recovery if an incident or crisis occurs.

Groups are strongly encouraged to undertake BCP to form part of the LDMPs and DDMPs to ensure the group can continue to operate during a disaster event to provide coordination and emergency support to the local community.

L.1.269 Joint Australian/New Zealand Standard for business continuity – managing disruption-related risk AS/NZ 5050:2010

4.2.6 Functional Plans

A functional plan is developed by lead agencies to address specific planning requirements attached to each function. Although the functional lead agency has primary responsibility, arrangements for the coordination of relevant organisations that play a supporting role are also to be outlined in these plans.

The lead agencies and their responsibilities are detailed in Appendix C of the SDMP.

4.2.7 Hazard specific plans

A hazard specific plan is developed by a state government agency with assigned lead responsibility to address a particular hazard under the SDMP. An example of a hazard specific plan is an emergency action plan for referrable dams.

Local and district disaster groups should be aware of these hazard specific plans as it informs and assists in their planning.

The lead agencies and their responsibilities are detailed in Appendix C of the SDMP.

4.2.8 Operational Plans

An operational plan is a response plan which outlines a problem/concern/vulnerability and identifies the appropriate actions (what? who? how? when?) to address the situation. Groups are encouraged to prepare an operational plan which sits within the disaster management plan and is developed after conducting a risk assessment.

4.2.9 Contingency Plans

A contingency plan is developed to assist with managing a gap in capability to ensure services are maintained. Contingency planning can be undertaken as deliberate planning or immediate planning (discussed further in section 4.3) as it groups are encouraged to do this planning to address gaps on an as needs basis.

4.2.10 Education and engagement planning

Critical elements of effective disaster management include educating, raising awareness and engaging with the community to create collaboration, cooperation and understanding among all stakeholders.

Community programs focus on creating resilient communities that understand the risks of potential disasters, are well prepared financially, physically, socially and mentally to minimise impacts, recover quickly and emerge stronger than their pre-disaster state.

As part of their risk management process, LDMGs and DDMGs are encouraged to identify community education, awareness and engagement as treatments for mitigating risks and increasing resilience and transition these elements into an integrated and comprehensive community education and awareness program.

Communication planning involves identifying opportunities for consistent messaging, joint programs and commonalities, in conjunction with the relevant stakeholders such as neighbouring LDMGs, DDMGs, NGOs or state level initiatives which may be leveraged locally (e.g. the Get Ready Queensland program).

The Australian Institute for Disaster Resilience’s Guidelines for the Development of Community Education, Awareness and Engagement Programs provides an excellent overview of the six key principles of effective programs:

‘localise’ programs and activities where possible
develop a program theory model for programs and activities that will provide a template for detailed planning and implementation, a ‘roadmap’ for evaluation and a permanent record of the thinking that occurred during program development
develop a small suite of programs and/or activities that focus on achieving different intermediate steps (processes) along the pathway from ‘risk awareness’ to ‘preparedness’ (planning, physical preparation, psychological preparation) and that are integrated 4 Preparedness Queensland Prevention, Preparedness, Response and Recovery Disaster Management Guideline 35 into a general plan for enhancing natural hazard preparedness in a locality or region
where appropriate, consider an integrated approach to planning, program development and research
conduct and report frequent evaluations of programs and activities to continually enhance the evidence base for what works in particular contexts in community safety approaches
seek to optimise the balance between ‘central’ policy positions, agency-operational requirements and specialist expertise on the one hand and community participation in planning, decision making, preparation and response activities on the other

L.1.160 Guidelines for the Development of Communication Education, Awareness and Engagement Programs – Manual 45

4.3 Planning

Planning involves clearly identifying:

the desired end state and the objectives to be achieved
how the plan is to be executed
the resources required.

Effective planning is essential for a community to successfully prepare for, respond to and subsequently recover from a disaster event. Risk assessments, risk based planning and resilience are closely integrated through the planning process.

Planning provides a means for addressing complex problems in a manageable way. The most effective plans are clear, concise and direct.

Good planning involves projecting forward to influence events before they occur rather than attempting to respond as events unfold. It actively avoids or mitigates issues before they arise by involving relevant stakeholders and creating shared partnerships during the development phase.

Planning falls into two broad categories: deliberate and immediate.

Deliberate planning – ideally conducted after a process of analysis, with planning commencing with scoping and framing such as depicted within section 4.3.1 Planning process. Deliberate planning projects well into the future to influence events either before they occur or to prevent them from occurring and to also realise objectives towards specific goals. This type of planning is generally:

Broad
flexible
scalable
risk-based

In terms of Queensland’s disaster management planning, the level of detail required in a deliberate plan will depend on the complexity of the risks analysed within the QERMF risk assessment (which in turn is based on the analysis of hazards and events likely to happen in the relevant area).

Deliberate planning requires assumptions about the future based on history and projections, such as the effect of climate adaptation.

Deliberate planning addresses key risks by describing:

purpose of the plan
roles and responsibilities
coordination of tasks
priorities for the relevant area based on identified risks
trigger and escalation points to enact sub-plans
resources required
communication, consultation and collaboration required
timelines.

Local, District or State Disaster Management Plans and sub-plans are the outcome of deliberate planning processes.

A beneficial outcome of deliberate planning in disaster management is the identification of residual risk – the risk that remains unmanaged, even when effective risk reduction measures are in place. This engenders an informed planning process throughout all tiers of Queensland’s disaster management arrangements and ensures a more 4 Preparedness Queensland 36 Prevention, Preparedness, Response and Recovery Disaster Management Guideline effective response and allocation of resources in the event of a disaster

Immediate planning – is event driven and based upon the development of situation awareness. Immediate planning will identify the most likely through to credible worst case scenarios by assessing actual or impending event characteristics and projecting the potential impacts and consequences (e.g. the path of a severe tropical cyclone is forecast to cross the Queensland coast in a particular location – pre-impact analysis using geospatial intelligence will inform the assessment of the situation and identify immediate planning requirements).

Immediate planning rests on close monitoring of an emerging situation with the focus on developing a timely response.

4.3.1 Planning process

The planning process enables agreements between individuals, agencies and community representatives to meet communities’ needs during disasters. The plan becomes an accessible record of the commitments made to perform certain actions and to allocate physical and human resources. The steps involved in planning are outlined below.

4.3.1.1 Scoping and Framing

Scoping and framing enables planners to clearly and simply articulate complex problems by documenting:

the purpose or reason for planning
a broad description of how the problem may be resolved
the desired future or ‘end’ state, often articulated as “what does ‘right’ look like?”

Scoping produces a broad overview of the situation, the initial identification and estimation of risks and any specific environmental considerations. It is also referred to as the problem space.

Framing is most important when dealing with large, geographically dispersed events. In short, it is a method for focusing on specific issues within a larger problem space.

Undertaking a QERMF risk assessment directly informs the scoping and framing components of disaster planning for a particular locality or district.

The process ensures the clear identification of the context, hazards, exposures and vulnerabilities within the area being assessed. This informs the risks to be addressed through the development of plans, such as a Local Disaster Management Plan (LDMP).

A collaborative approach among stakeholders – not necessarily just members of LDMGs or DDMGs – during the scoping and framing stage greatly assists with addressing identified vulnerabilities. For example, local owners and operators of critical infrastructure and representatives of community groups and community leaders would be excellent sources of knowledge for planning.

4.3.1.2 Course of Action Development

Multiple courses of action or a single effective solution may be identified depending on time, risk and or resource constraints. A range of factors including the need for phases, sequencing and synchronisation may be required, particularly if the solution covers a significant geographical area, involves coordination of multiple stakeholders as well as acquisition or deployment of logistical support.

Courses of action should always be critically appraised for:

feasibility
effectiveness and efficiency
acceptability
timeliness and risk

The development of a course of action should consider:

What needs to be done? What is or may be exposed, vulnerable and at highest risk? This drives priority of action.
What can be done? (feasibility):

Possible courses of action - what capability is available that will prevent or resolve the problem/s and what is the capacity of that capability?
evaluate and select the preferred course/s of action - what is the best option after considering all circumstances (considering acceptability, timeliness and the risk in undertaking that action)

Developing a plan – a plan is created after selecting the best option and determining how it can be done in 4 Preparedness Queensland Prevention, Preparedness, Response and Recovery Disaster Management Guideline 37 the available time and space and resource availability (effectiveness and efficiency).

Approving the plan – once a plan is developed, it must be approved. The approval will depend on the level the plan was created (local or district) and will need to be shared with appropriate stakeholders through Queensland’s disaster management arrangements, so that support and resourcing requirements are known and enacted.

Enacting or executing the plan – once the plan has been approved by the relevant authorising person or group, the strategy or plan must be implemented.

M.1.137 Risk Based Planning Manual

H.1.102 Queensland Emergency Risk Management Framework – Risk Assessment Process Handbook

L.1.209 Vulnerable Sections of Society Report

L.1.208 People with vulnerabilities in disasters: A framework for an effective local response

4.3.2 Effective risk-based planning

For Queensland disaster management, risk-based planning occurs through the completion of a QERMF risk assessment. Key considerations for each step of the QERMF process are outlined below. In addition to these, planners also should include the following considerations:

comprehensive approach (plan across PPRR)
integrated approach – all agency
all hazards focus
locally led

4.3.2.1 Hazard Identification

The hazard analysis identifies most likely and credible worst case scenarios as well as hazards specific to the assessed area. This ensures a realistic and relevant approach tailored to the characteristics of the specific area. Hazard identification is achieved through evaluating relevant hazard data to the area being assessed

4.3.2.2 Identifying Stakeholder Groups

Inviting and uniting relevant stakeholders (including industry stakeholders and community representatives) to conduct both risk assessments and planning activities is imperative to creating successful strategies for responding to identified vulnerabilities. All levels of Queensland’s disaster management arrangements – local, district and state – should do this.

4.3.2.3 Risk Assessment

A risk assessment identifies vulnerabilities and the capability and capacity for managing them, evaluates the effectiveness of existing controls, and identifies gaps in systems, processes, plans or capability.

A risk assessment also assists in determining specific stakeholders’ capabilities and capacities to address identified vulnerabilities relating to their assets or responsibilities. This allows LDMGs and DDMGs to identify any gaps, delineate responsibilities between them and specific stakeholders, champion localised risk sharing arrangements and clearly articulate any residual risk requiring action.

4.3.2.4 Communicating Residual Risk

Communicating gaps in capability and capacity within Queensland’s disaster management arrangements, enables each level of the arrangements to plan appropriately in support of the identified risks.

For more information regarding the declaring of a disaster situation refer to Chapter 3 section 3.5.

4.3.2.5 Developing Plans

By adopting the risk-based planning approach in the QERMF, plans become fit-for-purpose and efficiently and effectively address the identified issues

4.3.2.6 Community Education

Effective plans identify community awareness and resilience programs as part of the risk assessment. This assists with informing further planning strategies such as community education programs relating to specific hazards or plans.

4.3.2.7 Training

Training is also a key component within the planning process, particularly for those with roles and responsibilities in enacting a specific plan.

For more information regarding the training refer to Chapter 2 section 2.2.

4.3.2.8 Exercise

The development and enactment of scenarios to evaluate the effectiveness of plans is key to good governance and assurance.

Analysing plan effectiveness – both in times of exercise and post-incident response – enhances planning outcomes and enables the implementation of lessons identified.

Accordingly, plans must be adjusted where necessary. Flexibility and agility in planning, rather than rigidity, ensures plans remain relevant, realistic and risk-based

L.1.272 Managing Exercises – Handbook 3

4.4 Planning Considerations

4.4.1 Activation and triggers

Timely activation, across all levels of Queensland's disaster management arrangements, is critical to an effective disaster response. Disaster management arrangements in Queensland are activated using an escalation model based on the four levels – Alert, Lean Forward, Stand Up and Stand Down. Disaster management groups' journey through this escalation phase is not necessarily sequential. Rather, it responds to the changing characteristics of the location and event.

Activation does not mean disaster management groups must be convened but that they must be kept informed about the risks associated with the potential, evolving disaster event.

RG.1.157 Disaster Management Group Activation Triggers Reference Guide

When planning for activations and triggers, consider the following:

Activation and trigger procedures are informed by the risk assessment process based on the likelihood of potential hazards or disaster events affecting the local area.
Activation procedures should be included in disaster management plans at all levels and it is recommended they articulate:

agreed and documented levels of activation and escalation procedures that include trigger points and required actions during pre-emptive operations and Lean Forward and Stand Up phases
established and documented responsibility to monitor the indicators of disasters, including ensuring timely activation is achieved.

Ensure training, as appropriate to the role or function as outlined in the QDMTF, is undertaken by all members and other persons who hold responsibilities for situational awareness activities.
Activation and trigger procedures are informed by the identification of risk, the likelihood and consequences of the risk, are appropriate to the purpose, role and function of the entity in question and then timed and nuanced to meet the needs of relevant communities.

4.4.2 Disaster Coordination Centres

Disaster coordination centres bring together organisations to ensure effective disaster management before, during and after an event. The primary functions of disaster coordination centres revolve around three key activities:

forward planning
resource management
information management.

Specifically, functions include:

analysis of probable future requirements and forward planning including preliminary investigations to aid the response to potential requests for assistance
implementation of operational decisions of the disaster coordinator
advice of additional resources required for the local government to the DDMG
coordination of allocated state and Australian government resources in support of local government response
provision of prompt and relevant information across local, district and state levels concerning any disaster events.

For more information regarding the activation and operations of disaster coordination centres refer to Chapter 5, section 5.4.

When planning for disaster coordination centres, consider the following:

Determine resource capacity and capability requirements and gaps based on risk, including any facilities, information, people, material, equipment and service needs necessary for the effective operation of the coordination centre during a disaster.
Prior to an event, undertake analysis of disruption related risk and a business impact assessment (BIA) to establish, agree to and document BCP arrangements for the centre.
Referring to the risk assessment and BIA prior to an event:

identify and ensure arrangements are in place for appropriate resource capability and capacity to effectively operate the coordination centre
establish, agree to and document resource capability requirements to confirm the skills and knowledge required for roles within the disaster management group training program, aligned to and informed by the QDMTF
establish, agree to and document sound financial management and accountability processes and procedures to be followed in the centre
establish, agree to and document state government agencies' and disaster management groups' roles and responsibilities within the coordination centre, across all phases and at all levels of activation within the SDMP and disaster management sub-plans
establish, agree to and document state government agencies' and disaster management groups' processes and standard operating procedures which guide the coordination of disaster operations and activities within the coordination centre, across all phases and at all levels of activation within the SDMP and disaster management sub-plans
agree to a system or process for managing the resources required to staff the coordination centre (e.g. surge capacity, staff rostering/rotation and fatigue considerations) to ensure resource capacity limits of the disaster coordination centre are known and communicated to relevant groups
ensure a system or procedure for receiving and distributing information between disaster management groups and entities for coordinating and sharing information (such as decision making, tasking, communications and requests) across all phases and at all levels
ensure Agency Liaison Officers' core business processes and procedures include the support of disaster operations within disaster coordination centres to maintain effective and efficient delivery of responsibilities (such as functional lead agency responsibilities described in the SDMP)
ensure arrangements are established for the deployment, reception, registration, briefing, tasking, coordination, supervision and debriefing of coordination centre staff deployed to support resource capacity and capability
identify an approach for communicating with coordination centre resources, including a communication plan which includes information for the individuals and organisations who play a role within the coordination centre (e.g. disaster management plan, risk assessment, processes or procedures)
ensure training, as appropriate to the role or function as outlined in the QDMTF, is undertaken by all identified people and LDMG members who hold responsibilities within the disaster coordination centre.

Activate the centre in line with documented processes and procedures for activation triggers documented within the disaster management plan.
Undertake immediate planning to enact the relevant plan, procedures and processes for response.
Consider maintaining the use of coordination centre staff until full transition to recovery is achieved.
Identify a process where the efforts of coordination centre staff are recorded, acknowledged and communicated.
Review the engagement and management of coordination centre staff to identify lessons identified and development needs to build greater resilience in future.

4.4.2.1 Local Disaster Coordination Centres

LDCCs are either permanent or temporary facilities within each LGA, or combine LGA, established to support the LDMG during disasters.

LDCCs operationalise LDMG decisions, as well as plan and implement strategies and activities on behalf of the LDMG during disaster operations.

The main function of the LDCC is to coordinate resources and assistance in support of local agencies and stakeholders engaged in disaster operations.

4.4.2.2 District Disaster Coordination Centres

A DDCC is established to support the DDMG in the provision of state level support to affected local governments within that district.

The DDCC coordinates the collection and prompt dissemination of relevant information to and from LDCCs and the SDCC about disaster events occurring within their disaster district. The DDCC implements decisions of the DDC and DDMG and coordinates state and Australian Government resources in support of LDMGs and disaster affected communities in their district.

4.4.2.3 State Disaster Coordination Centre

The SDCC is a permanent facility located at the Emergency Services Complex at Kedron, Brisbane.

The SDCC operates as a 24/7 Watch Desk when not activated for a disaster, and is staffed and maintained in a state of operational readiness by QFES.

The SDCC supports the SDC by coordinating the state level operational response capability during disaster operations. The SDCC ensures that information is disseminated to all levels in Queensland’s disaster management arrangements, including the Australian Government.

4.4.3 Financial Arrangements

Disaster management groups must plan financial services to support frontline response operations and ensure the appropriate management of financial arrangements.

For more information regarding the financial planning refer to Chapter 5 section 5.9.

Each support agency is responsible for providing its own financial services and support to its response operations in the field. When planning financial management and expenditure, consider the following:

Use the risk management process to first ascertain mitigation across all phases of operation and then identify funding requirements to enable those mitigation strategies.
Identify and capture funding programs available to support the financial expenditure related to disaster operations and ensure the requirements for evidencing claims are built into financial management processes and procedures.
Ensure local governments' and other responding agencies' internal financial management processes and procedures support a disaster event and enable eventual financial claiming process to recoup funds.
Transition agency specific mitigation actions to agency business plans to ensure the appropriate resourcing and funding of their commitments across all phases of disaster management.
Agree on, document and embed event-related financial management processes and procedures to ensure expenditure is appropriately endorsed, captured and claimed by agencies and groups from the onset of operations (e.g. the type and limit of expenditure permitted, relevant agency's procurement policy, requirements detailed in funding programs).
Establish and document capability in the plan to monitor agreed financial management processes and procedures and ensure expenditure is appropriately endorsed, captured and claimed by agencies and groups from the onset of operations.
Ensure agreed financial expenditure is appropriately endorsed and immediately captured by agencies and groups from the onset of disaster operations.
Ensure agreed financial expenditure is claimed against the appropriate arrangements where applicable, such as the Natural Disaster Relief and Recovery Arrangements (NDRRA) or State Disaster Relief Arrangements (SDRA) if activated.

4.4.4 Communications and systems for public information and warnings

All disaster management groups play an important role in notifying and disseminating information to members of their respective groups and the wider community.

The agency responsible for issuing official warnings depends on the hazard. For example, QFES is responsible for issuing bushfire warnings, the BoM is responsible for issuing cyclone, storm and flood warnings and Queensland Health is responsible for issuing warnings about public health and heatwave health. These agencies are also to ensure the warnings are provided to other relevant response agencies and for ensuring the community is aware of the meaning of the warnings and their accompanying safety messages.

Each disaster management group should have an established notification and dissemination process prepared, documented within its plan and able to be implemented, which considers and addresses the time restrictions of rapid onset events like severe weather events.

Groups should also ensure the effective collection, monitoring, management and dissemination of accurate, useful and timely information and warnings to the public prior to, during and after disaster events to:

educate and inform relevant stakeholders and community members of disaster management information, warning methods and products
inform the relevant stakeholders and community members of an impending or current hazard
promote appropriate prevention, preparedness, response and recovery actions.

The process of disseminating information and warnings does not depend on the activation of a disaster management group. Rather, it is the standard responsibility of disaster management groups.

L.1.161 Emergency Warnings: Choosing Your Words

4.4.4.1 Local Communications

Local governments may use local early warning systems and communication channels to issue information to provide advance warning of severe weather or other public safety events to help prepare and protect people and property.

Early warning systems are opt-in systems providing information and warnings on registered or physical locations.

Providing timely and accurate information about an imminent hazard gives people the opportunity to prepare by taking action to reduce the level of risk for themselves and others. Further, the ability to communicate directly with communities – and therefore keep them informed – increases their resilience. When planning for local communication channels, consider the following:

Identify a scale of notification and suitable communication channels to ensure accurate, reliable, relevant and timely information is provided to people, groups and communities as required.
Identify the most effective communication channels available to reach stakeholders and community members in selected areas (e.g. SMS on mobiles, email, landline, fax, web, social media, broadcast media).
Determine the most appropriate communication channels based on the characteristics of the population (e.g. size, structure, distribution, age) to ensure appropriate methods are used.
Identify the capacity and capability needed to manage the processes for local information provision.
To assist in the delivery of information, groups may consider:

resourcing requirements outside of group activations and disaster events
using interpreter services
using community engagement experts.

Use 'opt-in' early warning services and systems to provide location based severe weather and incident advice.
Assess the effectiveness of communication channels to ensure they are appropriate for the needs of the area (e.g. a system used in South-East Queensland may not be suitable for Far Northern Queensland due to remote communities with limited reception and/or internet access).
Agree on and document in the disaster management plan, roles, responsibilities and processes for using various communication channels.
Ensure training, as appropriate to the role or function as outlined in the QDMTF, is undertaken by all identified people and LDMG members who hold responsibilities for local notification systems.
Identify, agree on and document in the disaster management plan, alternative processes where 'opt-in' early warning services and systems are not suitable.
Exercise information and warning procedures, including testing community understanding of content, perception of authority and response.
Capture the lessons identified from exercises to ensure the continuous improvement of the plan, the system and the messages to ultimately increase community resilience.
Consider the distribution of information and warnings to communicate actions to be taken during prevention, preparedness, response and recovery phases.
Ensure communication requirements are informed by the identification of risk, the likelihood and consequences of that risk, appropriately timed and nuanced to achieve the purpose of that communication and to meet the needs of the targeted audience.
Monitor and review information and warning processes to include lessons identified from events and ensure continuous improvement to increase community resilience.

4.4.4.2 Standard Emergency Warning Systems

In 1999, all Australian states and territories agreed a Standard Emergency Warning Signal (SEWS) would be used to assist in the delivery of public warnings and messages for major emergency events.

SEWS is a wailing siren sound used as an alert signal to be played on public media to draw attention to the emergency warning. The signal is sounded immediately before the emergency warning message in potentially affected areas.

Responsibility for the management of SEWS in Queensland rests with the QFES Commissioner in coordination with the Queensland State Manager BoM for meteorological purposes.

When planning for the use of SEWS, consider community education, awareness and engagement programs to ensure the importance of SEWS is understood, including actions to be undertaken, by the wider community.

M.1.171 The Standard Emergency Warning Signal Manual

4.4.4.3 Emergency Alert

EA is a national telephone warning system used to send voice messages to landlines and text messages to mobile phones within a defined area about likely or actual emergencies. EA provides a non-opt out capability to maximise coverage.

The management and administration of EA in Queensland is the responsibility of QFES, however other agencies can request the use of the system. EA is used as one element in a suite of channels for providing community information and issuing warnings.

The use of EA is guided by applying the EA decision-making criteria (provided in the toolkit) to emerging events to ensure that appropriate, accurate, timely and relevant community safety messages relating to a major imminent emergency or disaster are urgently distributed to those who need to receive them.

For more information regarding Emergency Alert and additional community safety information refer to the Emergency Alert website.

When planning for the use of EA, consider the following:

Undertake an analysis of identified risks which may require an Emergency Alert campaign based on the likelihood of potential hazards or disaster operations affecting the local area.
Identify, agree to and document the process, roles and responsibilities for the authorised use of EA within the disaster management plan.

Develop pre-prepared polygons and messages to be stored on the QFES EA Portal, based on the risk assessment process, which will prompt appropriate community response and action. The message must be:

simple, interesting and brief
suited to the needs of the community
worded in accordance with advice from the relevant lead agencies
used in the appropriate templates.

Identify, agree to and document opportunities for a collaborative approach with relevant stakeholders. As an example, in locations where hazards and community characteristics are similar across multiple LGAs, the relevant LDMGs in conjunction with their DDMG/s should develop a centralised, joint strategy for information dissemination and evacuation direction routes.
Establish and document responsibility for situational awareness in the disaster management plan to ensure the correct monitoring of key indicators, timely decision making and appropriate escalation procedures.
Consider the likely community behaviour and perceptions, and operational requirements once an EA campaign has started, particularly the time and resources required for authorities to establish activities on which the community will rely. For example, if people are requested to self-evacuate, where should they go and what facilities and resources will be required when they arrive.
Incorporate the use of EA into community education, awareness and engagement programs, and communication plans well before any event to ensure all stakeholders, including the wider community, understand the importance of the message and that subsequent action may be required.
Exercise EA processes, including testing the community's understanding of content, perception of authority and response.
Capture the lessons identified from exercises to ensure the continuous improvement of the plan, the system and the messages to ultimately increase community resilience.
Ensure communication requirements are informed by the identification of risk, the likelihood and consequences of that risk, appropriately timed and nuanced to achieve the purpose of that communication and to meet the needs of the targeted audience.
Undertake immediate planning to enact the relevant plan, procedures and processes for response (e.g. Evacuation Sub-plan, Public Information and Warnings Sub-plan).
Align communication requirements with the recovery operations affecting the local area.
Capture the lessons identified from exercises to ensure the continuous improvement of the plan, the system and the messages to ultimately increase community resilience.

M.1.174 Emergency Alert Manual

RG.1.273 Emergency Alert Incident Controller Check List

D.1.176 Emergency Alert: Process Map

F.1.177 Emergency Alert: Request Form

4.4.4.4 Tsunami Notifications

The BoM developed and issued the Queensland Tsunami Notification Protocol in 2009. The Joint Australian Tsunami Warning Centre (JATWC), operated by BoM and Geoscience Australia, issues warnings for tsunamis in Australia. Tsunami bulletins, watches, warnings, cancellations and event summaries are part of a suite of warnings for severe weather events and hazards issued by the BoM.

The JATWC notifies the BoM's Queensland regional office by telephone before issuing a tsunami warning and, in turn, the BoM's Queensland regional office confirms receipt of the warning by the SDCC by telephone.

Those who receive the message, at all levels of Queensland's disaster management arrangements, should ensure the community is aware of the meaning of the warning notification and accompanying safety message.

For more information regarding weather warning information refer to the BoM website

M.1.183 Queensland Tsunami Notification Manual

D.1.184 Queensland Tsunami Notification Responsibilities Diagram

When planning for tsunami notifications, consider the following:

Undertake analysis of identified exposure to elements within the community which may be vulnerable to a tsunami, based on the likelihood of the potential hazard affecting the local area.
Identify, agree to and document processes, roles and responsibilities for distributing warning messages via multiple mediums, taking into account complementary existing tsunami warning systems operated by other agencies (e.g. tsunami warning systems from BoM and the SDCC, the use of EA, media and local warning systems).
Identify, agree to and document within a communications plan the most appropriate channels for providing timely information to stakeholders and community members. This includes pre-scripted messages based on established JATWC messages to be delivered by local leaders (usually the Mayor or other designated LDMG representative).
In conjunction with state government agencies and relevant disaster management groups, ensure processes and standard operating procedures which guide the coordination of the tsunami warning are seamless and consistent. Provide key contacts within LGAs to be advised by the state government agencies in the event of a tsunami warning.
Consider the likely community behaviour and perceptions, and operational requirements once a tsunami warning or EA campaign has started, particularly the time and resources required for authorities to establish activities on which the community will rely. For example, if people are requested to self-evacuate, where should they go and what facilities and resources will be required when they arrive?
Document community education, awareness and engagement programs to ensure a broad understanding of tsunami warnings and actions to take on the receipt of warnings.
Ensure details of recipients remain up-to-date and any changes are provided to the BoM and the SDCC, and other agencies with responsibilities for the transmission of warnings.
Test the system at least annually.
Ensure communication requirements are informed by the identification of risk, the likelihood and consequences of that risk, appropriately timed and nuanced to achieve the purpose of that communication and to meet the needs of the targeted audience.

4.4.4.5 Media Management

Each disaster management group is strongly encouraged to develop a media strategy as part of its disaster management plan that:

is flexible for application in any given event (all hazards)
identifies key messages to inform the community including:

reinforcing the LDMG's role in coordinating support to the affected community
reinforcing the DDMG's role in coordinating whole of government support to LDMGs (and the affected community)

identifies preferred spokespersons for factual information (e.g. evacuation measures, road closures)
is consistent with the Crisis Communication Network arrangements outlined in the Queensland Government Arrangements for Coordinating Public Information in a Crisis.

Arrangements regarding community awareness, public information and warnings including media management during disaster operations are to be considered for inclusion in LDMPs and DDMPs.

H.1.159 Queensland Government: arrangements for coordinating public information in a crisis

4.4.5 Evacuation and sheltering arrangements

Evacuation is a hazard mitigation strategy and a risk reduction activity that lessens the effects of a disaster on a community. It involves the movement of people to a safer location and their subsequent safe return. Evacuation planning is essential to ensure it is implemented as effectively as possible.

Evacuation may be undertaken in the following ways:

Self-evacuation – this is the self-initiated movement of people to safer places prior to, or in the absence of, official advice or warnings to evacuate. Some people may choose to leave early even in the absence of a hazard but based on a forecast. Safer places may include sheltering with family or friends who may live in a safer building or location. Selfevacuees manage their own withdrawal, including transportation arrangements. People are encouraged to evacuate early if they intend to evacuate.
Voluntary evacuation – also known as recommended evacuation is where an evacuation advice has been issued, with people strongly encouraged to consider enacting their evacuation plans. Voluntary evacuees also manage their own withdrawal.
Directed evacuation – also known as compulsory evacuation is where a relevant government agency has exercised a legislated power that requires people to evacuate. A directed evacuation under the Act requires the declaration of a disaster situation. A DDC may declare a disaster situation which requires the approval of the Minister for Fire and Emergency Services and must be made in accordance with section 65 of the Act. During a disaster situation, the DDC and Declared Disaster Officers are provided with additional powers under sections 77-78 of the Act. These powers may be required to give effect to a directed evacuation. A LDC, as part of the LDMG, may make a recommendation to a DDC that a directed evacuation is required, based on their situational awareness in preparation for an imminent disaster. However, as the LDMG/LDC has no legislative power to effect a directed evacuation, the responsibility for authorising a directed evacuation remains with the DDC. When an evacuation is directed, general advice and direction will be provided in relation to timings, places of shelter, location and preferred evacuation routes.

Wide ranging evacuation and direction powers are provided to the police under the Public Safety Preservation Act 1986, to control a declared situation.

An evacuation involves five stages, shown in Figure 4.2.

Figure 4.2 The five stages of an evacuation

Planning at each of these stages is crucial. Specific planning considerations are detailed further in this chapter.

Figure 4.3 illustrates the spectrum of the evacuation process. An evacuation is not considered to be complete until all five stages have been implemented.

Figure 4.3 The entire spectrum of the evacuation process demonstrates the need for planning at every stage.

International experience indicates mass evacuation can cause anxiety and stress and lead to panic and loss of life. It is for this reason that it is recommended plans be developed based on credible worst case scenario, taking into consideration the scale of the event through immediate planning. An evacuation well-planned and communicated prior to the occurrence of an event will minimise risks to both the community and disaster management personnel.

Evacuation facilities and safer locations describe a variety of sites and buildings which may need to be established to accommodate people during an evacuation. Categories of evacuation facilities comprise:

Shelter in place – if evacuation is not directed, residents are encouraged to seek refuge in their own homes or with family who may live in a safer building or location.
Evacuation centre – located beyond a hazard to provide temporary accommodation, food and water until it is safe for evacuees to return to their homes or alternative accommodation.
Public cyclone shelter – a building designed, constructed and maintained in accordance with government requirements and provides protection to evacuees during a cyclone.
Place of refuge – a building assessed as suitable to provide protection to evacuees during a cyclone, but is not a public cyclone shelter. These are typically opened when the capacities of other evacuation facilities have been exceeded.
Neighbourhood safe places – buildings or open spaces where people may gather as a last resort to seek shelter from bushfire.
Assembly points - a temporary designated location specifically selected as a point which is not anticipated to be adversely affected by the hazard.

Although not an evacuation facility, Recovery Hubs are established to provide a range of services to facilitate recovery including welfare, support, financial and emotional recovery services. Recovery Hubs are typically managed by the Department of Communities, Disability Services and Seniors. Planning should include options for locations for these hubs.

Disaster management groups plan and coordinate their evacuation procedures to ensure efficient movement of people from an unsafe or potentially unsafe location to a safer location and their eventual return home. When planning an evacuation, consider the following:

Local governments, in close consultation with their LDMGs, should analyse the identified exposure to elements within the community which may trigger the requirement for evacuation, based on the likelihood of these potential hazards affecting the local area (e.g. tsunami, cyclone, bushfire).
Determine the most appropriate evacuation requirements based on the characteristics of the population (e.g. size, structure, distribution, age) to ensure an appropriate method is used.
Identify the capacity and capability needed to manage evacuation processes, including resourcing requirements (e.g. interpreter services).
Local governments, in close consultation with the LDMGs, should conduct evacuation planning prior to the onset of an event using their local knowledge, experience, community understanding and existing community relationships.
Involve all identified key local, district and state stakeholders in evacuation planning and clearly identify, agree to and document the processes and roles and responsibilities of those involved.
Develop an Evacuation Sub-plan which addresses:

Scale – planning should be geared to the consequences of the reasonable worst case scenario within the local area considering the scale from small to mass evacuation, with a firm understanding of the potential number of people involved.
Type of evacuation facility – – the variety of buildings and sites to accommodate evacuees in response to a disaster event. There is a requirement to be clear on the types of evacuation facilities – detailed previously in section 4.4.5 – in the planning process.
Stages – evacuation sub-plans should follow the five stages of evacuation, as discussed previously: decision to evacuate, warning, withdrawal, shelter and return.
Time – evacuation may be required before a disaster event impacts as a defensive measure, or post-impact as a result of the aftermath of the event, such as loss of services or severe damage to building structures.
Notice – depending on the nature of the event an evacuation may be immediate with little or no warning and limited preparation time or pre-warned allowing adequate time for preparation.
Compulsion – some individuals within the community may decide to self-evacuate prior to any direction from authorities. When evacuation is encouraged by authorities it is undertaken as either voluntary evacuation where exposed persons are encouraged to commence evacuation voluntarily, or directed evacuation, where exposed persons are directed under legislative authority to evacuate an area exposed to the impact of a hazard.

As the LDMG/LDC has no legislative power to effect a directed evacuation, the responsibility for authorising a directed evacuation remains with the DDC.

M.1.190 Evacuation and Sheltering Arrangements Manual

L.1.191 Food Safety in Evacuation Centres

H.1.193 Queensland Evacuation Centre Planning Toolkit

H.1.259 Queensland Evacuation Centre Management Handbook

L.1.255 National Planning Principles for Animals in Disasters

M.1.188 Public Cyclone Shelter Manual

M.1.189 Tropical Cyclone Storm Tide Warning Response System Handbook

Consider the likely community behaviour and perceptions, and operational requirements once the decision to evacuate has been made, particularly the time and resources required for authorities to establish activities on which the community will rely. For example, if people are requested to self-evacuate, where should they go and what facilities and resources will be required when they arrive?
Incorporate evacuation requirements into community education, awareness and engagement programs, and communication plans well before any event to ensure all stakeholders, including the wider community, understand the actions they need to take (e.g. evacuation zones should be easy to understand, identified and planned prior to the onset of any event to ensure they are clear to residents, transient populations and anyone new to the community).
Identify, agree to and document opportunities for consistent messaging and the joint delivery of programs in conjunction with relevant stakeholders. As an example, in locations where hazards and community characteristics are similar across multiple local government and media broadcast areas, the relevant LDMGs in conjunction with their DDMG/s could develop a centralised, joint strategy for information dissemination and evacuation routes.
Agree to a process for managing the resources required for an evacuation to identify any capacity limits and ensure adequate support will be available (e.g. a DDMG should use information provided by an LDMG to inform its own planning process and where appropriate, inform the SDMG of any need for additional support).
Identify, agree to and document, in consultation with the relevant DDMG, the requirements to activate elements of the Evacuation Sub-plan to receive evacuees from other LGAs or districts.
Where there is a possibility that returning will not occur in the short term, the Recovery Sub-plan should include strategies for managing displaced people and enabling their return as soon as practicable.
Develop and agree to a communication plan with all relevant stakeholders and support agencies to increase consistency, enhance community partnerships and minimise the potential for confusion and time delays during an event that requires evacuation.
Capture the lessons identified from exercises to ensure the continuous improvement of the plan, the system and the messages to ultimately increase community resilience.
Document and schedule exercising of the Evacuation Sub-plan including testing of the community's understanding of content, perception of authority and response.
Evacuation requirements are informed by the identification of risk, the likelihood and consequences of that risk, appropriately timed and nuanced to achieve the purpose of the evacuation and to meet the needs of the targeted communities.
Undertake immediate planning to enact the relevant plan, procedures and processes for response (e.g. Evacuation Sub-plan, Public Information and Warnings Sub-plan).
Undertake immediate planning, in consultation with the relevant groups, to provide appropriate recovery services to facilitate immediate, short term and longer term temporary accommodation solutions for displaced community members and incoming relief and recovery workforce.

4.4.6 Logistics

Meeting the resource needs of a disaster affected community requires a systemic approach supported by a risk management process, business continuity plan and partnerships with key stakeholders – such as suppliers – during the planning phase.

The function of logistics during a disaster event is the detailed organisation, provision, movement and management of resources required in disaster operations, in other words 'having the right thing, at the right place, at the right time.'

Logistics activities can be broadly broken into three phases:

before the event
during the event
after the event.

Disaster management groups are strongly encouraged to plan their logistics to effectively manage the receipt and delivery of the appropriate supplies within the disaster affected area, in good condition, in the quantities required, and at the places and times they are needed.

Common logistics categories in Queensland include:

managing requests for assistance (including offers of assistance)
emergency supply
council to council arrangements
resupply operations.

When planning logistics, consider:

Use the risk assessment of identified hazard exposures to elements to identify the need for appropriate logistical support, based on the likelihood of the potential hazard affecting the local area, as well as community need.
Identify the capacity and capability necessary to manage and coordinate the receipt and delivery of the appropriate supplies, including requests for material assistance as well as requested and resources which may arrive en-masse to the affected area (e.g. SES deployed resources or spontaneous volunteers).
Identify, agree to and document processes, roles and responsibilities within a Logistics Sub-plan to manage the request, receipt and delivery of the appropriate resources, materials and supplies within the disaster affected area.
It is recommended logistic sub-plans include arrangements for:

Emergency supply – a local emergency supply register which may include aviation providers, bedding suppliers, construction contractors, chemical/cleaning specialists, food stocks/stores, general hardware, hire equipment, refrigeration/ice, transport providers, waste management and water suppliers).
Resupply – procedures for the resupply of isolated communities, isolated rural properties and stranded persons, as well as ensuring retailers and the wider community are aware of their responsibilities for periods of isolation (e.g. stocking up on sufficient foods, medicines, water, fodder stockpiles, fuel) with the long term aim of increasing resilience.
Offers of and requests for assistance – the ability to coordinate, support and facilitate those requests (e.g. the booking of travel and accommodation for volunteers).

In conjunction with relevant state government agencies and disaster management groups, ensure processes and standard operating procedures for the logistics function are seamless and consistent.
Logistics sub-plans should incorporate the latest NDRRA and SDRA advice to assist decision making for emergency supply and resupply funding eligibility.
Local supplier contacts who can assist in providing goods and services available to the group should be provided to the DDMG.
Departments and agencies that require materials or resources for disaster operations must identify the availability of those resources within their core business, document their own internal acquisition/supply processes and support resource capability, and use these before requesting support through Queensland's disaster management arrangements.
Ensure training, as appropriate to the role or function as outlined in the QDMTF, is undertaken by all identified people and LDMG members who hold responsibilities within the disaster coordination centre.
Document community education, awareness and engagement programs to promote the importance of individual and community responsibilities for planning for and preparing adequate resources for a disaster.
Exercise logistics operations including testing of the community's understanding of their responsibility, perception of authority and response.
Exercise lessons identified are captured to ensure continuous improvement of the plan, the system and robust, fit-for-purpose logistics arrangements are in place to support community need.
Identify resource needs using an informed analysis of community needs.

RG.1.196 Request for Assistance Reference Guide

4.4.6.1 Emergency Supply

Emergency supply is the acquisition and management of emergency supplies and services in support of disaster operations. The emergency supply process is generally conducted through the existing Request for Assistance (RFA) process.

Successful emergency supply stems from a combination of effective disaster plans, current supplier registers and an understanding of process at all levels of Queensland's disaster management arrangements to expedite requests.

4.4.6.2 Resupply operations

The size and geographic diversity of Queensland, the dispersion of its communities and the nature of the potential hazards makes it probable that many communities will be temporarily isolated at times by the effects of those hazards.

No two resupply operations are identical and LDMGs are encouraged to document in their disaster management plan the specific requirements of the community and the logistical considerations in conducting resupply operations for their LGA.

Resupply operations are not intended to ensure retailers can continue to trade nor are they a substitute for individual and retailer preparation and preparedness. Resupply operations are expensive and logistically challenging and must be considered as a last resort.

There are three distinct types of resupply operations traditionally undertaken in Queensland:

resupply of isolated communities
isolated rural property resupply
resupply of stranded persons.

M.1.205 Resupply Manual

F.1.206 Resupply Request Form

4.4.6.3 Council to council arrangements

The Council to Council Support Program (C2C) responds to the needs of councils affected by natural disasters and acknowledges the desire of unaffected councils to support their colleagues during these events.

During a disaster event, local councils may seek assistance from other local councils to provide personnel or physical resources (e.g. machinery, signs, bedding, vector control teams).

The C2C program is a streamlined method for providing assistance from one local government group to another within Queensland's disaster management arrangements.

Local requests for C2C support are made through the RFA process to the DDC via the LDMG.

For more information regarding the RFA process refer to Chapter 5 section 5.8.

4.4.7 Offers of assistance

Following disaster events, the public – in Queensland, across Australia and on some occasions overseas – generously offers assistance to affected individuals and communities in the form of financial donations, volunteering, and goods and services.

These offers of assistance provide significant support to those affected by a disaster event and aids local businesses and the wider community to recover. It is highly beneficial to have a plan for offers of assistance prior to a disaster event to maximise the associated benefits.

Offers of assistance are categorised under one of the following:

Financial donations – may be offered spontaneously or in response to an appeal and are used to provide immediate financial relief and assistance.
Volunteers – individuals, groups or organisations that offer to assist a disaster affected community.
Goods and services – solicited or unsolicited goods and services offered by members of the public, community, businesses, organisations and corporate entities to support individuals and communities following disaster events.
Corporate donations may include money, volunteers and goods and services.

4.4.7.1 Financial donations

Financial donations may be offered spontaneously, or in response to an appeal. Early and consistent public messaging is crucial to ensure spontaneous donations are directed appropriately.

A disaster management group may choose to manage financial donations internally or outsource the responsibility to another entity. Either way, it must ensure there are sufficient resources to maintain proper governance processes.

It is beneficial to have identified and established the preferred arrangements regarding offers of assistance well before a disaster event occurs. When planning for financial donations, consider the following:

Determine how financial donations are going to be managed, either within a government agency or disaster management group or outsourced to, for example, a NGO.
Determine any resource capacity and capability gaps to ensure appropriate (e.g. legal, ethical) management of financial donations.
Identify and document the chosen arrangements for managing financial donations.
Ensure sufficient resources exist for the management of financial donations. This may include agreements with NGOs before the event.
Undertake a review of previous management of financial donations and ensure any identified recommendations are incorporated in disaster management plans.
Develop standard operating procedures for the management of financial donations (e.g. record keeping, receipts, communication, winding up funds, service level agreement requirements if outsourcing).
Advise relevant stakeholders, including LDMGs and DDMGs, of the preferred approach for the management of financial donations.
Monitor financial donation arrangements and processes.
Implement or continue consistent public messaging using appropriate channels to make financial donations.
Monitor the administration of donations and ensure the distribution of funds undertaken in a timely manner.
Review the management of financial donations to identify possible improvements.

4.4.7.2 Volunteers

Community members are renowned for becoming first responders in a disaster event.

This is known as emergent community response and recovery or community mobilisation and usually consists of friends, families and neighbours volunteering to help themselves and others through their interpersonal relationships and their socioeconomic connections.

This scenario of 'people helping people' who know and trust each other does not require formal coordination processes. Accordingly, this guideline does not further consider the management of this cohort.

People involved in community mobilisation do require clear communication about the disaster event and support services available along with the rest of the community.

Community mobilisation aside, two primary types of volunteers offer their time and skills during an event:

Trained volunteers – individuals formally affiliated with an emergency service organisation or NGO (e.g. QFES SES and Rural Fire Service, Salvation Army and service clubs) and act under their respective organisations' direction and authority.
Spontaneous volunteers – individuals or groups who are not skilled or trained to perform specific roles in disasters and are often not affiliated with an emergency or community organisation but are motivated to help.

Volunteers are the responsibility of the organisation for which they volunteer.

Following a disaster, an influx of spontaneous volunteers may arrive unsolicited at the scene of a disaster or approach organisations they wish to help. Volunteers often want to assist immediately but may not be aware of, or try to work around, existing local disaster management arrangements. They may not be prepared (or insured) for the risks, conditions or environmental dangers.

Planning will greatly assist with the coordination of activities associated with engaging, recruiting, training, supervising and ensuring spontaneous volunteers are properly registered, insured, safe and provide the required support to the community in a way that builds community resilience.

When considering offers from spontaneous volunteers, it is essential to assess the human and social, cultural, economic and environmental impact this may have on local community recovery, resilience building, the administrative and logistical requirements, the costs associated with managing spontaneous volunteers and coordination of the offers. Further, it is imperative that volunteering organisations put affected people's needs first and ensure their activities do not harm or hinder.

LDMGs should establish relationships, procedures and memoranda of understanding with volunteering organisations, ideally before a disaster event, to help assess the need for volunteers.

Communication strategies for the engagement of these volunteers, including clear referral pathways for registering to help, must be developed.

LDMGs and councils should also develop and plan a method or process for effectively registering and managing data from volunteers. It is advisable this responsibility is outsourced to a nominated service delivery entity or NGO to manage the offers from volunteers. This agency can provide good practice guidance and support, and effectively plan, train and advise on volunteer registration and data management.

Requests received at the state level will be referred to the LDMG or nominated service delivery entity. When planning for volunteers, consider the following:

Determine any capacity and capability gaps based on risk (including any legal issues associated with spontaneous volunteers e.g. safety, liability and insurance matters).
Determine the capacity and capability necessary for managing and coordinating spontaneous volunteers based on risk.
Determine the practicality of using spontaneous volunteers and in what circumstances their use would be considered.
Determine and document the approach for managing and coordinating spontaneous volunteers, including a robust communication strategy (which includes information for offering assistance). This may require a disaster management group or a member of a disaster management group (e.g. a local government) to take responsibility for spontaneous volunteers, or outsourcing to a nominated service delivery entity.
Incorporate spontaneous volunteer arrangements into disaster management sub-plans and include this as part of a broader exercise program.
Identify and document management arrangements for spontaneous volunteers, including:

requiring and conducting screen checks (e.g. safety, liability and insurance matters)
receiving, registering, briefing, tasking, coordination, supervision and debriefing of spontaneous volunteers
volunteer engagement
communications on the likelihood of spontaneous volunteers being needed or accepted
collaborating with relevant state government agencies, community groups, NGOs and nominated service delivery agencies
identifying NGOs that can support disaster management groups.

Implement or continue consistent public messaging.
Implement the preparedness arrangements and ensure governance arrangements are in place.
Consider maintaining the use of volunteers for recovery efforts.
Identify a process where offers and efforts of spontaneous volunteers are recorded, acknowledged and communicated.
As part of the LDMG seasonal event review, review the engagement, use and management of volunteers to identify lessons identified and to build greater resilience for future disasters.

4.4.7.3 Donations of goods and services

When soliciting or considering offers of goods and services, multiple issues should be considered including:

the potential economic impact on local business recovery
administrative and logistical requirements
costs for managing and coordinating the offer
quality requirements on offered goods to restrict the volume of unsuitable items
risks associated with offers of partial services (e.g. sometimes offers for the use of machinery are made with an expectation that operational costs such as fuel will be recovered by the owner).

Offers of goods and services can be self-managed by an LDMG or outsourced to a nominated service delivery entity, such as GIVIT.

When planning for donations of goods and services, consider the following:

Determine how donations of goods and services are going to be managed, either internally within a government agency or disaster management group or outsourced to a nominated service delivery entity.
Determine resource capacity and capability gaps based on risk to ensure appropriate (legal, economic, ethical) management of donations of goods and services.
Determine and document the resources necessary for managing and coordinating offers of goods and services (internally or outsourced) to ensure those resources will be available when a disaster occurs.
Determine mechanisms and document processes in which offers of goods and services will be pledged, vetted and matched, including contingency strategies if disaster management group, government agency or NGO capabilities are exhausted by the volume of donations.
Develop standard operating procedures for the management of offers of goods and services such as receipt, delivery, storage and disposal of unused or unwanted goods.
Monitor administration, quality and distribution of offers of goods and services (internally or outsourced) to ensure they are done in a timely and equitable manner.
Implement or continue consistent public messaging using appropriate channels.
Review the management of goods and services to identify possible improvements.

4.4.7.4 Corporate donations

Corporate offers of assistance may comprise any or all of types of offers of assistance and are usually larger in size. All corporate offers of goods and services should be referred to GIVIT. Corporate offers should not be accepted by a government agency when:

the offering entity has breached the Integrity Act 2009 in the previous five years (other than in exceptional circumstances)
accepting the offer may compromise the integrity of the accepting agency or organisation or reduce public confidence in the disaster response or recovery operation. These requirements do not apply when the corporate offer is made to an NGO. When uncertainty exists about accepting an offer, the offeror should be referred to an NGO.

For more information regarding Offers of Assistance refer to Chapter 7.

When planning for corporate donations, consider the following:

Determine how corporate donations will be managed.
Determine the resource capacity and capability gaps based on risk for ensuring appropriate (legal, ethical, economical) management of corporate donations.
Identify and document arrangements and processes for vetting and referring corporate offers.
Determine and document the resources necessary for managing and coordinating corporate offers (internally or outsourced).
Develop standard operating procedures for managing and coordinating corporate donations such as information sharing and storing and managing data.
Ensure the administration, distribution and referral of corporate donations (internally or outsourced) are done in a timely manner.
Implement or continue consistent public messaging using appropriate channels.
Review the management of corporate donations to identify possible improvements.

P.1.201 Offers of Assistance Policy

M.1.202 Managing Offers of Assistance Manual

L.1.204 GIVIT Disaster and Emergency Recovery Service.

L.1.271 Communities Responding to Disasters: Planning for Spontaneous Volunteers – Handbook 12

L.1.203 National Guidelines for Managing Donated Goods

4.4.8 Recovery

The need for recovery may arise from a range of disasters, often providing an opportunity to rebuild a stronger, more resilient community.

Planning for recovery is integral to preparing for emergencies; it is not simply a post-disaster consideration. Recovery begins with planning for and responding to a disaster and continues until after the affected community is able to manage on its own.

The recovery process often begins during the response to an event and may continue long term. Recovery requires collaboration between all levels of Queensland's disaster management arrangements, business, NGOs and the community.

When planning for recovery, consider the following:

Determine resource capacity and capability gaps based on risk to ensure the appropriate planning and coordination of recovery functions.
Identify and document arrangements and strategies to coordinate recovery operations at local, district and state levels, including the establishment of recovery groups.
Determine and document the resources necessary to achieve functional responsibilities for recovery at the local and district levels.
Develop and maintain recovery plans at local, district and state levels, including operational plans.
Monitor the activation, administration and operations of functional recovery groups and recovery arrangements and strategies.
Continue to monitor recovery arrangements, strategies and operations to identify possible improvements.

For more information regarding Offers of Assistance refer to Chapter 7.

>>Prevention Preparedness, Response and Recovery Disaster Management Guideline

Last updated 06 April 2022

Foresight

A principle of cascading disasters is that the world is ever more closely linked by networks on which we all depend for communications, commerce, enlightenment and entertainment. When disaster strikes, these networks are capable of transmitting impacts through a variety of domains and system states, each of which produces different consequences. The cascade is a result of the progression of a shock through different kinds of vulnerability. To categorise these as social, economic, psychological, environmental, institutional, and so on is to oversimplify the mechanisms within them and the connections between them.

Behind this scenario is globalisation. The term has many different meanings. It can signify a means of diversifying assets so as to optimise the way they can be used to exploit people, for example, by shifting manufacturing production to places where wages can most easily be suppressed. It can also mean communication over very long distances, leading to the adoption of common agendas among disparate groups of people. In globalisation there is a degree of uniformity of culture, tastes and social mores. This makes it easy to spread concepts that are compatible with the culture, tastes and mores.

There has recently been a surge of research interest in disaster and conflict (ref). It is obvious that military instability is likely to complicate and retard the process of getting natural hazard impacts under control. Everyday risk factors are different when floods, transportation crashes, landslides, toxic spills, structural collapses occur against a background of asymmetric warfare, armed insurgency, fighting or rampant terrorism. One question that is asked relatively rarely is why we exclude warfare from our definitions of disaster. Is war not a disaster in its own right? The answer is that we do so on the basis of convenience, because introducing armed conflict into the disaster equation would easily lead to unmanageable complexity.

The Russian invasion of Ukraine is a cascading disaster with global ramifications. It shows up failure to avoid provocation between states, failure to predict and mitigate conflict, failure to make sufficient progress in the transition away from dependency on fossil fuels, and failure to resolve disputes in the global arena. It poses challenges of coping with massive, unplanned mass migration, preventing the escalation of conflict into other states or the global arena, preventing deadlock in the United Nations Organisation and revitalising it. All of these problems have at their root a lack of foresight and an inability to create stable global governance, as well, of course, as simple bad behaviour by national leaders. Moreover, at the world scale there has been a gradual and sustained retreat from democracy as well as a retreat from the principle of right to protection (R2P). Moreover, the Coronavirus pandemic has been widely used as a pretext for curtailing human rights.

The apparent impotence of the United Nations in the face of armed aggression by one country against another might beg the provocative question “are we witnessing the end of globalisation?” Inspired by the events that led to the fall of the Berlin Wall, 30 years ago Francis Fukuyama wrote his treatise on The End of History (Fukuyama 1992). History, of course, continues to be made, both as events and as some form of human social development. One wonders whether, instead, we are seeing the end of progress. A related question is whether progress is the essential motor of globalisation, and whether globalisation would collapse without it.

Niels Bohr famously said that “prediction is very difficult, especially about the future”. Nevertheless, a defining malaise of our age is the failure to exercise foresight. If many things cannot be foreseen, at least they can be visualised as possibilities or probabilities. One can then ask how they would be dealt with if they materialise. We tend to analyse problems using the matrix, or within the context, that prevails at the moment. Yet the problems may materialise in a very different context in which the values in the matrix diverge substantially from those that currently prevail.

Two further observations are pertinent here. One is that the shifting context pilots events. The other is that it can be demanding and expensive (in various ways) to transform foresight into action, and it may be something that lacks broad support, especially among people who lack foresight.

We cannot understand disaster without knowledge of its root causes and the dynamic pressures that trigger the forces that precipitate it. The dynamic pressures, in turn, cannot be understood without knowledge of the context in which disaster occurs. One of the major challenges of the modern age is to understand a context which tends to broaden from the purely local to a global extent. Geopolitics, globalised production, global competition for natural resources and the world-wide effects of climate change all have local impacts and implications. Conversely, local events can have repercussions around the world. As an example, consider the impact of the Fukushima Dai’ichi nuclear release in Japan in 2011 on nuclear energy policy in other countries (Wittneben 2012,Kim et al. 2013).

References

Fukuyama, F. 1992. The End of History and the Last Man. The Free Press, New York, 418 pp.

Kim, Y., M. Kim and W. Kim 2013. Effect of the Fukushima nuclear disaster on global public acceptance of nuclear energy. Energy Policy 61: 822-828. DOI: 10.1016/j.enpol.2013.06.107

Wittneben, B.F. 2012. The impact of the Fukushima nuclear accident on European energy policy. Environmental Science and Policy 15(1): 1-3. DOI: 10.1016/j.envsci.2011.09.002

Disaster Planning and Emergency Management: Foresight (emergency-planning.blogspot.com)

What Is Disaster Management? Understanding Emergencies From Prevention to Mitigation

September 3, 2021

The 2021 Surfside condo collapse in Florida destroyed homes and lives. In the same year, unprecedented deluges flooded Germany and China, with tragic results. We cannot entirely avoid disasters, but we can prepare for and address them.

Prevention efforts and coordinated responses to disasters save lives and lessen their impact on communities. Professionals in disaster management play a crucial role in preventing suffering, protecting people’s livelihoods, and helping communities recover. What is disaster management? To answer the question, you should examine how these professionals deal with disaster — before, during, and after it strikes.

Defining Disaster Management

Disasters take many shapes. Human-made disasters result from human errors and include industrial explosions or structure failures. Natural disasters result from physical phenomena and include earthquakes and droughts. Disasters classified as complex can include epidemics or armed conflicts.

In whatever form, disasters disrupt communities and can take a serious toll on people, property, economies, and the environment. They often stretch a community’s capacity to cope.

Disaster management is a process of effectively preparing for and responding to disasters. It involves strategically organizing resources to lessen the harm that disasters cause. It also involves a systematic approach to managing the responsibilities of disaster prevention, preparedness, response, and recovery.

Understanding Risks in Disaster Management

Often, issues such as a poorly maintained levee system or other negligence can worsen the outcome of a disaster. Such was the case when Hurricane Katrina overwhelmed New Orleans’ levees in 2005.

By addressing deferred infrastructure maintenance and other causal factors, governments and organizations can often prevent, or at least reduce, the fallout of disasters.

Disaster management involves examining and managing causal factors. It requires assessing the extent to which a community can withstand a disaster. Some communities are more vulnerable than others. For example, poorer communities have fewer resources to prepare themselves for a storm or bounce back from flood damage.

Disaster management also involves analyzing exposure to loss. For example, homes built below sea level may face greater exposure to flooding if a hurricane hits them.

The Scope of Disaster Management

Disaster management has a broad scope. To understand what disaster management is, it is useful to study prevention, preparedness, and response and recovery.

Prevention

Mitigation and prevention efforts aim to reduce the potential damage and suffering that disasters can cause. While disaster management cannot prevent disasters, it can prevent them from becoming compounded as a result of neglecting causal factors and manageable risks. Mitigation specifically refers to actions taken that can lessen the severity of a disaster’s impact. Investing in measures that limit hazards can greatly reduce the burden of disasters.

Strategies that disaster management professionals implement to protect vulnerable communities and limit hazards include the following:

Raising awareness about potential hazards and how to address them
Educating the public about how to properly prepare for different types of disaster
Installing and strengthening prediction and warning systems

Managing hazards and risks means planning to minimize a community’s vulnerability to disasters. This can involve:

Encouraging community members to buy appropriate insurance to protect their properties and belongings
Educating families and businesses on how to create effective disaster plans
Promoting the use of fire-retardant materials in construction
Advocating for capital works initiatives, such as the construction and maintenance of levees
Building partnerships between sectors and agencies at the federal, state, and local levels to collaborate on mitigation projects

Disaster management professionals working on mitigation efforts also focus on the following:

Land Use and Building Codes

Building schools, hospitals, and neighborhoods in flood-prone areas increases their exposure to disasters. Disaster management spotlights these risks and presents ideas to use land in safer ways.

For example, rather than constructing homes in floodplains, community planners can designate those areas as places for outdoor recreation, wildlife attractions, or hiking trails. They can also urge people to avoid these areas during flood season. These measures make residents and their homes less vulnerable to harm.

Additionally, mitigation efforts can do the following:

Address ways to engineer bridges to sustain earthquakes
Enforce building codes that safeguard buildings during hurricanes

Critical Infrastructure

Protecting critical infrastructure during a disaster can mean the difference between life and death. Critical infrastructure, which comprises the systems and assets vital to a community’s economy, security, and public health, deserves special attention as regards disaster management mitigation.

Setting up protective measures that limit damage to water and wastewater systems or nuclear plants, for example, can prevent serious repercussions.

As an example, Japan experienced devastating physical and psychological consequences after a 2011 earthquake triggered a tsunami. The inundation of water cut off the power supply to the cooling system for Fukushima Daiichi reactors, leading to a massive nuclear accident.

Preparedness

Well-coordinated responses to disasters require prior planning. This helps ensure fast, effective response efforts and limits duplicated efforts.

Disaster preparedness plans:

Identify organizational resources
Designate roles and responsibilities
Create procedures and policies
Organize activities that improve disaster readiness

Anticipating the needs of communities that disasters affect improves the quality of the response efforts. Building the capacities of volunteers, personnel, and disaster management teams to respond to disasters also makes the response efforts more effective.

Plans may include the following:

Emergency shelter sites
Evacuation routes
Emergency energy and water sources

They may also address:

Chains of command
Training programs
Communication procedures
Emergency supply distribution
Stockpile needs

Contingency Planning

Disaster readiness calls for contingency planning, advance decisions about managing human and monetary resources, coordinating procedures between different agencies, and organizing logistics.

Contingency plans answer three basic questions:

What will happen?
What will the response be?
What will be done ahead of time to prepare?

Response and Recovery

During and immediately after an emergency, disaster management focuses on delivering help and interventions that can save lives, safeguard health, and protect buildings, animals, and community property. Following an initial response, efforts shift toward supporting communities as they rebuild emotionally, economically, and physically.

Disaster Relief

Disaster relief addresses the immediate and short-term needs of disaster-affected communities. It can include evacuations, search and rescue missions, and emergency medical assistance.

Examples of disaster relief are:

Setting up temporary shelters that provide a safe place to sleep, food, and emotional support from trained personnel
Delivering meals and water
Distributing emergency supplies and necessities, such as toiletries for hygiene and tarps, shovels, trash bags for cleanup efforts
Providing emergency health services, such as first aid for injuries and prescription medication replacements

Rebuilding

Emergency management helps communities rebuild their lives after trauma. This involves longer-term efforts to restore:

Housing
Economies
Infrastructure systems
Individual and community health

Federal agencies and supporting organizations help communities with problem-solving and finding resources as they redevelop and revitalize.

Recovery assistance may include the following:

Unemployment assistance
Housing assistance
Legal services
Mental health counseling
Disaster case management

Protect Communities by Launching a Career in Disaster Management

What is disaster management? It is a comprehensive approach to preventing, preparing for, responding to, and aiding in emergency recovery efforts. Whether spearheading emergency management for human-made or natural disasters, professionals in the field play invaluable roles in saving lives and reducing suffering.

Explore what it takes to become an expert in disaster management by learning more about Tulane University’s Master of Public Health in Disaster Management.

Sources

AkitaBox, “4 Phases of Disaster Management Explained (The Easy Way)”

American Red Cross, Disaster Relief

Center for Excellence in Disaster Management & Humanitarian Assistance, Disaster Management Overview & Definitions

Centers for Disease Control and Prevention, Natural Disasters and Severe Weather

City of New Bedford, Disaster Mitigation

Federal Emergency Management Agency, National Incident Management System

IFRC, Contingency Planning

IFRC, Disaster Preparedness

Physiopedia, Disaster Management

Queensland Government, Disaster Management

Queensland Government, Preparedness Arrangements

U.S. Bureau of Labor Statistics, Emergency Management Directors

U.S. Department of Homeland Security, Disaster Response and Recovery

U.S. Department of the Interior, Natural Disaster Response and Recovery

World Vision, What Is Disaster Management?

Emergency Response Plan

English

The actions taken in the initial minutes of an emergency are critical. A prompt warning to employees to evacuate, shelter or lockdown can save lives. A call for help to public emergency services that provides full and accurate information will help the dispatcher send the right responders and equipment. An employee trained to administer first aid or perform CPR can be lifesaving. Action by employees with knowledge of building and process systems can help control a leak and minimize damage to the facility and the environment.

The first step when developing an emergency response plan is to conduct a risk assessment to identify potential emergency scenarios. An understanding of what can happen will enable you to determine resource requirements and to develop plans and procedures to prepare your business. The emergency plan should be consistent with your performance objectives.

At the very least, every facility should develop and implement an emergency plan for protecting employees, visitors, contractors and anyone else in the facility. This part of the emergency plan is called “protective actions for life safety” and includes building evacuation (“fire drills”), sheltering from severe weather such as tornadoes, “shelter-in-place” from an exterior airborne hazard such as a chemical release and lockdown. Lockdown is protective action when faced with an act of violence.

When an emergency occurs, the first priority is always life safety. The second priority is the stabilization of the incident. There are many actions that can be taken to stabilize an incident and minimize potential damage. First aid and CPR by trained employees can save lives. Use of fire extinguishers by trained employees can extinguish a small fire. Containment of a small chemical spill and supervision of building utilities and systems can minimize damage to a building and help prevent environmental damage.

Some severe weather events can be forecast hours before they arrive, providing valuable time to protect a facility. A plan should be established and resources should be on hand, or quickly, available to prepare a facility. The plan should also include a process for damage assessment, salvage, protection of undamaged property and cleanup following an incident. These actions to minimize further damage and business disruption are examples of property conservation.

Guidance for the development of an emergency response plan can be found in this step.

Protective Actions for Life Safety

When there is a hazard within a building such as a fire or chemical spill, occupants within the building should be evacuated or relocated to safety. Other incidents such as a bomb threat or receipt of a suspicious package may also require evacuation. If a tornado warning is broadcast, everyone should be moved to the strongest part of the building and away from exterior glass. If a transportation accident on a nearby highway results in the release of a chemical cloud, the fire department may warn to “shelter-in-place.” To protect employees from an act of violence, “lockdown” should be broadcast and everyone should hide or barricade themselves from the perpetrator.

Protective actions for life safety include:

Evacuation
Sheltering
Shelter-In-Place
Lockdown

Your emergency plan should include these protective actions. If you are a tenant in multi-tenanted building, coordinate planning with the building manager.

Evacuation

Prompt evacuation of employees requires a warning system that can be heard throughout the building. Test your fire alarm system to determine if it can be heard by all employees. If there is no fire alarm system, use a public address system, air horns or other means to warn everyone to evacuate. Sound the evacuation signal during planned drills so employees are familiar with the sound.

Make sure that there are sufficient exits available at all times.

Check to see that there are at least two exits from hazardous areas on every floor of every building. Building or fire codes may require more exits for larger buildings.
Walk around the building and verify that exits are marked with exit signs and there is sufficient lighting so people can safely travel to an exit. If you find anything that blocks an exit, have it removed.
Enter every stairwell, walk down the stairs, and open the exit door to the outside. Continue walking until you reach a safe place away from the building. Consider using this safe area as an assembly area for evacuees.

Appoint an evacuation team leader and assign employees to direct evacuation of the building. Assign at least one person to each floor to act as a “floor warden” to direct employees to the nearest safe exit. Assign a backup in case the floor warden is not available or if the size of the floor is very large. Ask employees if they would need any special assistance evacuating or moving to shelter. Assign a “buddy” or aide to assist persons with disabilities during an emergency. Contact the fire department to develop a plan to evacuate persons with disabilities.

Have a list of employees and maintain a visitor log at the front desk, reception area or main office area. Assign someone to take the lists to the assembly area when the building is evacuated. Use the lists to account for everyone and inform the fire department whether everyone has been accounted for. When employees are evacuated from a building, OSHA regulations require an accounting to ensure that everyone has gotten out safely. A fire, chemical spill or other hazard may block an exit, so make sure the evacuation team can direct employees to an alternate safe exit.

Sheltering

If a tornado warning is broadcast, a distinct warning signal should be sounded and everyone should move to shelter in the strongest part of the building. Shelters may include basements or interior rooms with reinforced masonry construction. Evaluate potential shelters and conduct a drill to see whether shelter space can hold all employees. Since there may be little time to shelter when a tornado is approaching, early warning is important. If there is a severe thunderstorm, monitor news sources in case a tornado warning is broadcast. Consider purchasing an Emergency Alert System radio - available at many electronic stores. Tune in to weather warnings broadcast by local radio and television stations. Subscribe to free text and email warnings, which are available from multiple news and weather resources on the Internet.

Shelter-In-Place

A tanker truck crashes on a nearby highway releasing a chemical cloud. A large column of black smoke billows into the air from a fire in a nearby manufacturing plant. If, as part of this event, an explosion, or act of terrorism has occurred, public emergency officials may order people in the vicinity to “shelter-in-place.” You should develop a shelter-in-place plan. The plan should include a means to warn everyone to move away from windows and move to the core of the building. Warn anyone working outside to enter the building immediately. Move everyone to the second and higher floors in a multistory building. Avoid occupying the basement. Close exterior doors and windows and shut down the building’s air handling system. Have everyone remain sheltered until public officials broadcast that it is safe to evacuate the building.

Lockdown

An act of violence in the workplace could occur without warning. If loud “pops” are heard and gunfire is suspected, every employee should know to hide and remain silent. They should seek refuge in a room, close and lock the door, and barricade the door if it can be done quickly. They should be trained to hide under a desk, in the corner of a room and away from the door or windows. Multiple people should be trained to broadcast a lockdown warning from a safe location.

Resources for Protective Actions for Life Safety

In addition to the following resources available on the Internet, seek guidance from your local fire department, police department, and emergency management agency.

Exit Routes and Emergency Planning – U.S. Occupational Safety & Health Administration (OSHA) 29 CFR 1910 Subpart E
NFPA 101: Life Safety Code® – National Fire Protection Association
Employee Alarm Systems – OSHA 29 CFR 1910.165
Evacuation Planning Matrix – OSHA
Evacuation Plans and Procedures eTool - OSHA
Design Guidance for Shelters and Safe Rooms – Federal Emergency Management Agency (FEMA 453)

Incident Stabilization

Stabilizing an emergency may involve many different actions including: firefighting, administering medical treatment, rescue, containing a spill of hazardous chemicals or handling a threat or act of violence. When you dial 9-1-1 you expect professionals to respond to your facility. Depending upon the response time and capabilities of public emergency services and the hazards and resources within your facility, you may choose to do more to prepare for these incidents. Regulations may require you to take action before emergency services arrive.

If you choose to do nothing more than call for help and evacuate, you should still prepare an emergency plan that includes prompt notification of emergency services, protective actions for life safety and accounting of all employees.

Developing the Emergency Plan

Developing an emergency plan begins with an understanding of what can happen. Review your risk assessment. Consider the performance objectives that you established for your program and decide how much you want to invest in planning beyond what is required by regulations.

Assess what resources are available for incident stabilization. Consider internal resources and external resources including public emergency services and contractors. Public emergency services include fire departments that may also provide rescue, hazardous materials and emergency medical services. If not provided by your local fire department, these services may be provided by another department, agency or even a private contractor. Reach out to local law enforcement to coordinate planning for security related threats.

Document available resources. Determine whether external resources have the information they would need to handle an emergency. If not, determine what information is required and be sure to document that information in your plan.

Prepare emergency procedures for foreseeable hazards and threats. Review the list of hazards presented at the bottom of the page. Develop hazard and threat specific procedures using guidance from the resource links at the bottom of this page.

Warning, Notifications, and Communications

Plans should define the most appropriate protective action for each hazard to ensure the safety of employees and others within the building. Determine how you will warn building occupants to take protective action. Develop protocols and procedures to alert first responders including public emergency services, trained employees and management. Identify how you will communicate with management and employees during and following an emergency.

Roles and Responsibilities for Building Owners and Facility Managers

Assign personnel the responsibility of controlling access to the emergency scene and for keeping people away from unsafe areas. Others should be familiar with the locations and functions of controls for building utility, life safety and protection systems. These systems include ventilation, electrical, water and sanitary systems; emergency power supplies; detection, alarm, communication and warning systems; fire suppression systems; pollution control and containment systems; and security and surveillance systems. Personnel should be assigned to operate or supervise these systems as directed by public emergency services if they are on-site.

Site and Facility Plans and Information

Public emergency services have limited knowledge about your facility and its hazards. Therefore, it is important to document information about your facility. That information is vital to ensure emergency responders can safely stabilize an incident that may occur. Documentation of building systems may also prove valuable when a utility system fails—such as when a water pipe breaks and no one knows how to shut off the water.

Compile a site-plan and plans for each floor of each building. Plans should show the layout of access roads, parking areas, buildings on the property, building entrances, the locations of emergency equipment and the locations of controls for building utility and protection systems. Instructions for operating all systems and equipment should be accessible to emergency responders.

Provide a copy of the plan to the public emergency services that would respond to your facility and others with responsibility for building management and security. Store the plan with other emergency planning information such as chemical Material Safety Data Sheets (MSDS), which are required by Hazard Communication or “right to know” regulations.

Training and Exercises

Train personnel so they are familiar with detection, alarm, communications, warning and protection systems. Review plans with staff to ensure they are familiar with their role and can carry out assigned responsibilities. Conduct evacuation, sheltering, sheltering-in-place and lockdown drills so employees will recognize the sound used to warn them and they will know what to do. Facilitate exercises to practice the plan, familiarize personnel with the plan and identify any gaps or deficiencies in the plan.

10 Steps for Developing the Emergency Response Plan

Review performance objectives for the program.
Review hazard or threat scenarios identified during the risk assessment.
Assess the availability and capabilities of resources for incident stabilization including people, systems and equipment available within your business and from external sources.
Talk with public emergency services (e.g., fire, police and emergency medical services) to determine their response time to your facility, knowledge of your facility and its hazards and their capabilities to stabilize an emergency at your facility.
Determine if there are any regulations pertaining to emergency planning at your facility; address applicable regulations in the plan.
Develop protective actions for life safety (evacuation, shelter, shelter-in-place, lockdown).
Develop hazard and threat-specific emergency procedures using the Emergency Response Plan for Businesses.
Coordinate emergency planning with public emergency services to stabilize incidents involving the hazards at your facility.
Train personnel so they can fulfill their roles and responsibilities.
Facilitate exercises to practice your plan.

Links to Emergency Planning Information

Pre-Incident Planning (Site and Building Information for First Responders)

Fire Service Features of Buildings and Fire Protection Systems - U.S. Occupational Safety & Health Administration (OSHA) Publication 3256-07N
Standard on Pre-Incident Planning - National Fire Protection Association (NFPA) 1620

Protective Actions for Life Safety

Medical

Automated External Defibrillators (AEDs) – OSHA
Bloodborne pathogens – OSHA 29 CFR 1910.1030
Model Plans and Programs for the OSHA Bloodborne Pathogens and Hazard Communications Standards – OSHA Publication 3186

Firefighting

Fire Protection – OSHA 29 CFR 1910 Subpart L
Fire Brigades - OSHA 29 CFR 1910.156
Standard on Industrial Fire Brigades - NFPA 600

Hazards to Consider When Developing the Emergency Plan

Natural hazards

Geological hazards

Earthquake
Tsunami
Volcano
Landslide, mudslide, subsidence

Meteorological Hazards

Flood, flash flood, tidal surge
Water control structure/dam/levee failure
Drought
Snow, ice, hail, sleet, arctic freeze
Windstorm, tropical cyclone, hurricane, tornado, dust storm
Extreme temperatures (heat, cold)
Lightning strikes (wildland fire following)

Biological hazards

Foodborne illnesses
Pandemic/Infectious/communicable disease (Avian flu, H1N1, etc.)

Human-caused events

Accidental

Hazardous material spill or release
Nuclear power plant incident (if located in proximity to a nuclear power plant)
Explosion/Fire
Transportation accident
Building/structure collapse
Entrapment and or rescue (machinery, confined space, high angle, water)
Transportation Incidents (motor vehicle, railroad, watercraft, aircraft, pipeline)

Intentional

Robbery
Lost person, child abduction, kidnap, extortion, hostage incident, workplace violence
Demonstrations, civil disturbance
Bomb threat, suspicious package
Terrorism

Technology caused events

Utility interruption or failure (telecommunications, electrical power, water, gas, steam, HVAC, pollution control system, sewerage system, other critical infrastructure)

Cyber security (data corruption/theft, loss of electronic data interchange or ecommerce, loss of domain name server, spyware/malware, vulnerability exploitation/botnets/hacking, denial of service)

Property Conservation

Taking action before a forecast event, such as a severe storm, can prevent damage. Prompt damage assessment and cleanup activities following the storm can minimize further damage and business disruption. These actions are considered “property conservation”—an important part of the emergency response plan. Much of the following guidance is directed to building owners and facility managers. However, tenants should also develop a plan in coordination with building owners and managers as well as public authorities.

Preparing a Facility for a Forecast Event

Body copy: Actions to prepare a facility for a forecast event depend upon the potential impacts from the hazards associated with the event. Conduct a risk assessment to identify severe weather hazards including winter storms, arctic freeze, tropical storm, hurricane, flooding, storm surge, severe thunderstorm, tornado and high winds. Also consider non-traditional hazards, such as a planned event involving a large crowd.

Property conservation actions should focus on protection of the building and valuable machinery, equipment and materials inside. Potential damage may be prevented or mitigated by inspecting the following building features, systems and equipment:

Windows and doors
Roof flashing, covering and drainage
Exterior signs
Mechanical equipment, antennas and satellite dishes on rooftops
Outside storage, tanks and equipment
Air intakes
High value machinery
Sensitive electronic equipment including information technology and process controllers

The review of building components may also identify opportunities for longer-term mitigation strategies.

Property conservation activities for specific forecast events include the following:

Winter storm - Keep building entrances and emergency exits clear; ensure there is adequate fuel for heating and emergency power supplies; monitor building heat, doors and windows to prevent localized freezing; monitor snow loading and clear roof drains.
Tropical storms and hurricanes - Stockpile and pre-cut plywood to board up windows and doors (or install hurricane shutters); ensure there is sufficient labor, tools and fasteners available; inspect roof coverings and flashing; clear roof and storm drains; check sump and portable pumps; backup electronic data and vital records off-site; relocate valuable inventory to a protected location away from the path of the storm.
Flooding - Identify the potential for flooding and plan to relocate goods, materials and equipment to a higher floor or higher ground. Clear storm drains and check sump and portable pumps. Raise stock and machinery off the floor. Prepare a plan to use sandbags to prevent water entry from doors and secure floor drains.

Salvage and Actions to Prevent Further Damage Following an Incident

Separating undamaged goods from water-soaked goods is an example of salvage. Covering holes in a roof or cleaning up water and ventilating a building are also part of property conservation. The property conservation plan should identify the resources needed to salvage undamaged good and materials; make temporary repairs to a building; clean up water, smoke and humidity; and prepare critical equipment for restart.

Resources for property conservation include the following:

water vacuums and tools to remove water
fans to remove smoke and humidity
tarpaulins or plywood to cover damaged roofs or broken windows
plastic sheeting to cover sensitive equipment

Compile an inventory of available equipment, tools and supplies and include it with the emergency response plan. Identify precautions for equipment exposed to water or high humidity and procedures for restarting machinery and equipment.

Identify contractors that may be called to assist with clean up and property conservation efforts. Keep in mind that competition for contractors, labor, materials and supplies prior to a forecast storm or following a regional disaster may be intense. Plan ahead and secure contractors and other resources in advance.

Resources for Property Conservation

Protect Your Property from High Winds - Federal Emergency Management Agency
Natural Disasters - U.S. Environmental Protection Agency
Emergency Drying Procedures for Water Damaged Collections - Library of Congress

Last Updated: 04/28/2022

Emergency Essentials: Tips for Assembling a Survival Kit

November 5, 2021

Are you ready for the next earthquake? The next flood? Wildfire? Hurricane? If you need to evacuate quickly, will you and your family have easy access to emergency essentials, including clean water, food, and first-aid supplies?

According to the American Institute of CPAs, only 34 percent of Americans have an emergency supplies kit. Along with developing a communication plan, assembling a kit of essentials is a necessary step to take in preparing for disaster.

Assembling a survival kit does not have to be overwhelming or expensive. Learn what to put in a survival kit, and why putting one together is so important.

Why Assembling a Survival Kit Is Important

Creating and maintaining a survival kit is a key component of every disaster preparedness checklist.

How Prepared Are Americans for Disaster?

The Federal Emergency Management Agency (FEMA) conducts an annual National Household Survey (NHS) across the U.S. to assess how well prepared Americans are for an emergency.

Basic Preparedness

FEMA tracks six basic “preparedness actions” that every household should take in anticipation of a disaster:

Gather survival supplies (to last at least three days)
Seek information about getting prepared
Discuss preparation strategies with other people
Make an emergency plan
Attend a local disaster preparation training
Participate in an emergency drill

According to 2020’s survey results, 68 percent of Americans took three or more of these six preparedness actions — up from 62 percent in 2019. The most common actions Americans took to prepare for disaster in 2020 were:

Gathering supplies (81 percent of respondents)
Seeking preparedness information (65 percent of respondents)
Creating an emergency plan (48 percent of respondents)

Rainy Day Fund vs. Emergency Fund

FEMA also surveys financial resilience. Of the 5,000 survey participants, 68 percent had set aside some money for emergency purposes, but 1 in 3 Americans had no funds set aside in case of emergency.

An emergency fund is a safety net in the event of a major loss or financial setback. Aim for emergency funds of three to six months or more of living expenses (bills, groceries, transportation costs, and other daily expenses).

The difference between an emergency fund and a rainy day fund is simple: rainy day funds pay for small, unexpected expenditures. For example, a rainy day fund could pay for replacing a broken window, or repairing a car part. Emergency funds should cover a household’s basic needs for several months.

The Need to Improve Preparedness Efforts

The same FEMA survey found that only around half of Americans feel prepared for disaster: Just 51 percent of respondents described themselves as prepared in 2020, up from 49 percent in 2013. This slight increase suggests that the increase in the rate of preparedness has stalled.

FEMA and other groups, including the American Red Cross and the Centers for Disease Control and Prevention, all call for a critical effort to encourage and guide people and communities in becoming better prepared.

What Is a Survival Kit?

Survival kits contain the emergency essentials you and your household need to endure an emergency situation. While many companies sell prepackaged survival kits (and these kits may be better than nothing in a disaster), the best survival kit for your household is one tailored to your unique needs and environment.

At the most basic, survival kits should include:

Water (and/or the means for purifying water)
Food (for at least 72 hours, if not longer)
First-aid kit
Essential medications

But a robust survival kit includes much more than just these basics.

Why Assemble Your Own Kit?

No one wants to be without water, food, and medical care during an emergency. In an emergency, numerous situations could unfold that prevent you from accessing basic goods and services:

Loss of Power, Heat, and Water

In many emergencies, access to basic amenities such as electricity, heat, and running water might not be available. You will need to survive on your own.

Evacuation

Some emergencies will displace you from your residence. These dire situations require swift evacuation. Your household may need to survive for a long period of time away from home, at a shelter or a secure evacuation site.

Unreliable Local Supply Chains

During a crisis, supermarkets, pharmacies, and gas stations may not operate at full capacity. You may not be able to rely on common sources of food and essentials when disaster strikes.

Delays in Outside Support

In some disasters, such as when Hurricane Katrina devastated New Orleans, emergency response teams are unable to reach individuals in remote areas for days. A well-stocked survival kit can keep your household fed and healthy while waiting for further aid.

Specific Needs

You should tailor your supply kit to fit your household’s specific needs. For example, you or a family member may take specific medications that should go into your survival kit for emergency purposes.

In sum, assembling a survival kit is a good idea for many reasons. You will be more prepared, more empowered, and more likely to stay safe and healthy during an emergency.

What to Include in a Survival Kit

The internet offers hundreds of checklists and resources for developing a survival kit. FEMA, the American Red Cross, and the Centers for Disease Control and Prevention all have their own disaster preparedness checklists.

Although these many guides offer tried-and-true recommendations, the best emergency kit will be the kit that you tailor for your specific requirements.

Tailoring Your Kit

When you start to build your kit, take a moment to assess your current living situation, environment, and needs, along with any challenges you will likely face if confronted with a disaster.

Do you have kids? Do you live in an area prone to tornadoes? Do you dislike canned foods but are willing to eat nutrient-dense bars? Can you reliably replace the perishable goods in your kit before they expire, or do you need to set an alarm to remember?

These sorts of questions — about the people you live with, the environment you live in, and your unique requirements and preferences — all factor into the process of assembling a survival kit that will work for you.

Consider Supplementing a Pre-Made Kit

Often consumers’ disaster preparation starts and ends with buying a ready-made emergency supply kit. A group of dedicated writers at The New York Times’ offshoot Wirecutter had the same idea. They tested kits priced from $70 to $200, each designed to sustain two adults for 72 hours after a disaster. While the group found that a pre-made kit was better than nothing, they also found that many of the items in the kits — specifically the first-aid supplies, flashlights, and radios — tended to be low quality.

The team’s recommendation? Assemble your own survival kit. Collect materials from local grocery stores, online retailers, and army supply stores, and look for products that will last.

Alternatively, supplement a pre-made kit with higher-quality items that will be able to endure an extended emergency.

The Bare Essentials

Survival kits should be portable and ready to go with the following emergency essentials in the case of evacuation.

Battery-powered or hand crank radio
Cash
Copies of important documents, safeguarded in a waterproof container or bag (driver’s license, birth certificate, insurance information with policy numbers)
Cellphone with a charger and a backup battery
Duct tape
Extra batteries
First-aid kit
Flashlight
Food (at least a three-day supply of nonperishable food)
Garbage bags
Hygiene supplies (toothpaste, sanitary napkins, towel, soap)
Local maps
Multiuse tool (manual can opener, knife, etc.)
Masks (for contaminated air)
Plastic sheeting (to shelter in place)
Prescription medications (at least seven days’ worth)
Sanitation supplies, including hand sanitizer
Thermal emergency blankets
Water (one gallon per person per day for at least three days, for drinking and sanitation)
Whistle

Battery-Powered or Hand Crank Radio

In an emergency, do not count on electricity. Opt for a good emergency weather radio with AM/FM capabilities. Tuning into the National Oceanic and Atmospheric Administration (NOAA) channels can keep you informed of extreme weather alerts and keep you entertained without power.

Choosing a battery-powered (plus extra batteries) or hand crank radio is recommended.

Cash

Keep cash handy in your emergency kit to avoid unnecessary trips to ATMs, which may not be working. Store cash in an accessible location, rather than at the bottom of a deep emergency storage bin.

Copies of Important Documents

House fires, floods, and other natural disasters can separate us from important documents. Stash copies of important documents, safeguarded in a waterproof container or bag.

Examples of important documents include, but are not limited to:

Driver’s licenses
Passports
Birth certificates
Insurance information/policy numbers/contact information
Medical documents

Store your copies of important documents somewhere that is easily reachable.

Cellphone

Having an emergency cellphone with a charger and backup battery in your kit could help you make a phone call in a pinch. Be sure to store all electronics, including cellphones, in a waterproof bag.

Duct Tape

Duct tape can have many uses in an emergency. Keep a roll or two on hand for building shelters, stopping leaks, and so on.

Extra Batteries

Electronic devices do not make it far without power. Take account of important electronics and add extra batteries and chargers to your survival kit.

First-Aid Kit

First-aid kits should include supplies for treating minor discomforts such as scrapes and cuts. At the very least, include:

Bandages
Gauze
Antiseptic wipes
Ointment
Painkillers

Kits should also contain some items for treating more serious injuries:

Dressing pads
Trauma pad
EpiPen or other emergency medications

Check the expiration dates on medications and bandages, and replenish your supply as needed.

Flashlight

If you are stuck without power or navigating in the dark at night, you’ll need a flashlight. Lanterns, headlamps, and candles can also provide light during an emergency. Add extra batteries or opt for lights that charge with solar power or run via hand-cranking mechanisms to keep the darkness at bay.

Food

FEMA strongly recommends that emergency kits contain at least 72 hours worth of food per person, including baby food and formula for young children.

Dedicated emergency ration bars, and other technically edible products, may keep you alive during a crisis.

Alternatively, or in addition, many people find that the best emergency food supplies are shelf-stable canned and dry goods. These may include:

Beans
Canned fish
Cereal
Dried fruit
Grains
Nuts
Pastas
Soups
Vegetables

The key to keeping food for a disaster is to monitor your emergency supply and replace any goods before they expire.

Garbage Bags

Never underestimate the value of a large plastic bag during an emergency. Garbage bags can hold solid and liquid trash, of course, but they can also be used as a rain poncho (cut a hole into one side for your neck, and cut two holes on the adjacent sides for your arms), a makeshift rain cover, and a flotation device for lightweight objects.

Hygiene Supplies

Lacking access to clean water and air can have serious health consequences. Staying clean prevents infection and limits the spread of germs.

During a crisis, otherwise minor wounds can become serious or even fatal sites of infection. During Hurricane Katrina, for example, some of the most common health issues were wound infections and gastrointestinal illnesses.

In addition to a first-aid kit, hand sanitizer, garbage bags, and face masks, packing basic personal hygiene supplies can keep you clean and healthy. Hygiene emergency essentials for your survival kit include:

Toothpaste
Floss
Soap
Tampons or menstrual pads
Diapers

Local Maps

In case your phone GPS becomes unusable, storing a map of the surrounding area in your survival kit can help you navigate during a crisis. Note any evacuation locations for earthquakes, floods, hurricanes, or other natural disasters on your map.

Multiuse Tool

Keep a tool or two that can help you cut through things. Many pocket knives have features that can open canned food, screw bolts, and slice as needed.

Masks

Dust and debris can make air unsafe during wildfires, hurricanes, and other disasters. Moreover, the COVID-19 pandemic has highlighted the dangers of airborne disease. Protect yourself with an N95 mask.

You might choose masks with exhalation valves to prevent glass lenses from fogging up and to allow moist air out of the mask when you breathe.

Prescription Medications

People should keep at least a seven-day supply of prescription medication in a survival kit in case of emergency, according to the CDC, since supply chains could be interrupted and pharmacies may not be able to fill prescriptions during a crisis. Also include a backup pair of prescription glasses if you wear them.

Sanitation Supplies

Store hand sanitizer and other sanitation supplies in your survival kit to stay healthy and clean.

Thermal Emergency Blankets

Staying warm and dry during an emergency can mean the difference between life and death. Lightweight thermal energy blankets can help you store body heat, and their reflective sides can also be used to catch the attention of others from far away.

Water

Water is absolutely essential. FEMA recommends that your survival kit include a gallon of water per person per day for a minimum of three full days. (So, a gallon per day times the number of people in your household, times three).

The folks at Wirecutter call FEMA’s estimate only the bare minimum. “We’ve seen that floods and hurricanes like Katrina and Sandy can cause massive utility disruptions and contamination of municipal water supplies,” they write. Their recommendation? Stockpiling at least a 10-day supply of water in dedicated emergency containers.

In addition to fresh water, emergency kits should contain water purification supplies. Water boiled for one minute (or three minutes at altitudes above 5,000 feet) is safe. See the CDC’s guide to water purification for more details.

Whistle

You may need to grab the attention of a group or rescue vehicle far away. A whistle can alert others to your location.

Explore What It Takes to Become a Leader in Disaster Preparation

Many disasters are not preventable, but you can prepare for them. Disaster preparation starts with assessing your situation.

The best survival kit is one that fits your household’s needs and environment. In addition to assembling a survival kit, develop a communication plan so you know how to proceed during an emergency. Mark your calendar and check your emergency kit at least once a year to maintain your protective supplies.

Are you interested in exploring more disaster management strategies? Learn about how Tulane University’s Master of Public Health in Disaster Management prepares graduates to become disaster management experts.

Sources:

American Red Cross, Survival Kit Supplies

Centers for Disease Control and Prevention, Family Emergency Kit Checklist

Centers for Disease Control and Prevention, Making Water Safe in an Emergency

FEMA, Emergency Supply List

FEMA, How to Build a Kit for Emergencies

LifeSecure, Why You Need a Preparedness Kit

The New York Times, Wirecutter, “The Best Emergency Preparedness Supplies”

Ready.Gov, Build a Kit

How to Prepare for a Natural Disaster

November 4, 2021

Person preparing an emergency backpack for a potential disaster.

During the summer of 2021, a record-setting heat wave hit the state of Washington. Public officials attribute at least two deaths and hundreds of related illnesses to the extreme temperatures, some as high as 119 degrees. Experts say climate change is driving the temperature rise. Only future analysis of the data will show the heat wave’s actual death count and how much it will likely continue to climb.

Climate scientists anticipate only increasing numbers of natural disasters in the coming years. As with the Washington heat wave, these natural disasters will likely threaten lives and livelihoods. How then can communities safeguard themselves? Knowing how to prepare for a natural disaster is key.

The Increase of Natural Disasters and Their Impact

The number of natural disasters has grown tenfold since the 1960s, according to the Ecological Threat Register 2020 report. From catastrophic wildfires blazing 18 million hectares of Australian land in 2020 to deadly flooding on Turkey’s Black Sea Coast in 2021, climate scientists warn more natural disasters are on their way.

Consider these additional findings from the same report:

In 2019, natural disasters displaced around 25 million people, almost three times the number of people displaced by armed conflicts.
Of the countries with the most people displaced by disasters in 2019, the U.S. ranked fifth in the world, with 916,000 people displaced.
Since 1990, the U.S. has experienced 704 natural disasters, more than any other country in the world.

A recent National Centers for Environmental Information (NCEI) study reported that 22 natural disasters struck the U.S in 2020 alone, shattering earlier records of 16 events in a year. The tropical cyclones, severe storms, drought, and wildfires came with a $95 billion price tag.

The NCEI study also reported that natural disasters killed 14,492 people in the U.S. from 1980 to 2020. About 27 percent of those deaths happened in just five years, between 2016 and 2020.

Whatever the specific causes of natural disasters, communities should prepare themselves to lessen the impact of these events, hopefully saving lives and preventing unnecessary suffering in the process.

Key Ways to Be Disaster Ready

Public health professionals trained in disaster management hold expertise on how to prepare for a natural disaster. They recognize that poor preparations beforehand can compound a disaster’s impact, potentially leading to a greater chance of:

Hunger and food insecurity
The spread of disease
Psychological scarring

To limit the damage of natural disasters, these experts can help communities take strategic steps to become more resilient and capable of withstanding hurricanes, landslides, wildfires and other potentially destructive events. Disaster preparedness involves taking a number of measures.

Developing Evacuation Plans

Some natural disasters may require evacuations, including wildfires, floods, and hurricanes. Evacuation plans include procedures devised to ensure that all those in danger have a way to get to a safe place. These procedures outline approaches for handling the evacuation of the general public and first responders.

Additionally, evacuation plans include strategies for assisting community members with mobility issues or other conditions that can impede their ability to evacuate on their own. People with disabilities, for example, may require special assistance.

Evacuation plans also address issues such as:

Conditions that make evacuations necessary
Chains of command that clearly designate roles and responsibilities during an evacuation
Instructions the public receives about how and when to evacuate
Evacuation routes

Successful evacuations require effective communication. Disaster management professionals may circulate information about evacuations across an entire community by:

Using different channels of communication with community members, such as social media, print media, television, and radio
Coordinating with utility companies to include evacuation maps alongside utility bills or posting major and alternate evacuation routes on government websites

Disaster management professionals also strive to build awareness in communities regarding individuals’ responsibilities to help facilitate their own safe evacuations. Through education campaigns, communities can learn how to prepare for natural disasters and potential evacuations. More specifically, education campaigns can teach communities about the following:

The Need to Plan for Evacuations in Advance

Instead of organizing a household evacuation right before or during a natural disaster, individuals and families should plan early. This involves mapping out well in advance various scenarios of where they will go and how they will get there during natural disasters.

Household evacuation plans account for transportation issues, such as the lack of a car. They also consider both main evacuation routes as well as backup routes if roads are blocked. Additionally, they detail arrangements for shelter at hotels or with family members in different towns or cities out of harm’s way.

What to Take During an Evacuation

During emergencies, people may struggle to think clearly. Checklists with suggested items to take, such as prescriptions, a first-aid kit, bottled water, a laptop, flashlights, and chargers, can help remind people to pack critical supplies. A list of important documents to take, such as passports, insurance policies, wills, and deeds, can also help prepare community members.

Storing Emergency Supplies

Natural disasters can cause power outages, affect water systems, and block access to hospitals and other facilities, potentially cutting off access to basic necessities, such as food and medication. As such, local authorities buy and store emergency supplies in preparation for emergencies.

Determining what emergency supplies to buy and stockpile requires careful assessment of a community’s potential needs and risks. Disaster management professionals evaluate the likelihood of various natural disasters occurring in a specific community, the damage they may cause, and the needed supplies for disaster response and recovery. For example, immediately after a hurricane, disaster response efforts will likely require a ready supply of first-aid kits, two-way radios, and power generators. Communities may also need prefabricated shelters, tarps, personal care and hygiene supplies, bottled water, and cots. Other critical supplies that disaster management professionals assess the need for can include the following:

Emergency and rescue equipment (life vests, rescue trucks, emergency lighting)
Personal safety and protection gear (respiratory masks, safety helmets, fire-retardant footwear)
Food and cooking supplies (preserved foods, disposable kitchenware)
Cleanup and rebuilding products (water treatments, disinfecting solutions, waste containers)

Practice Emergency Plans

Emergency plans outline the response measures that disaster management teams will take when disasters strike. They designate the roles and responsibilities of various positions, identify how agencies and departments will coordinate their efforts, and detail communication strategies.

However, it is not enough to develop emergency plans. Disaster management professionals must practice them, so they know how to prepare for a natural disaster in a specific community. This offers critical benefits, including the following:

Familiarizing emergency management teams with the procedures of the plan
Identifying training needs
Assessing the effectiveness of the plan in practice
Clarifying roles

To locate and troubleshoot problems and gaps in emergency plans, disaster management professionals put them to the test in the following ways:

Emergency Drills

Emergency drills test a specific operation in a disaster management department or agency. They involve practicing a specific activity and are often used to measure:

Correct use of equipment
Specific skills
Adherence to specific policies

Organizers of a drill evaluate the actions of participants and compare them with established standards. They then address any deficiencies, giving participants the opportunity to make adjustments and corrections.

Tabletop Exercises

In tabletop exercises, disaster management teams gather in sessions to discuss their roles and responsibilities in different simulated disaster situations. The leader of a tabletop exercise presents natural disaster scenarios and guides participants in a discussion about procedures and policies. This helps participants rehearse their roles and clarify points of confusion in low-pressure environments.

Full-Scale Exercises

Full-scale exercises aim to simulate a real disaster situation as much as possible. They take place in the field. These exercises mobilize and deploy the various agencies, organizations, and equipment involved in disaster response. Using a scripted natural disaster scenario, participants can assume their roles and perform their duties under time constraints to create a pressurized situation that mirrors that of real emergencies.

Prepare for Disasters and Save Lives

Trained professionals who know how to prepare for a natural disaster save lives. In the face of climate change and the surge of natural disasters, communities need the expertise of disaster management personnel more than ever. Tulane University offers an advanced degree designed to train professionals in the development of strategic disaster readiness plans that address public health needs. Discover how Tulane University’s Online Master of Public Health in Disaster Management prepares graduates to craft preparedness plans that strengthen communities.