5 Response
5 Response
5.1 Response arrangements
The Act defines disaster response as the taking of appropriate measures to respond to an event, including action taken and measures planned in anticipation of, during, and immediately after an event to ensure that its effects are minimised and that persons affected by the event are given immediate relief and support.
The aim of response operations is to save lives, protect property and make an affected area safe. Accordingly, response is the operationalisation and implementation of plans and processes, and the organisation of activities to respond to an event and its aftermath.
5.1.1 Disaster operations
Disaster response and disaster recovery are key components of disaster operations.
Disaster operations is defined in section 15 of the Act as activities undertaken before, during or after an event happens to help reduce loss of human life, illness or injury to humans, property loss or damage, or damage to the environment, including, for example, activities to mitigate the adverse effects of the event.
The correlation between disaster response and recovery phases, levels of activation and stages of operations is illustrated below in Figure 5.1.
5.1.1.1 Disaster response
In accordance with section 4A of the Act, local governments are primarily responsible for responding to disaster events in their LGA with district and state levels providing appropriate resources and support.
5.1.1.2 Disaster recovery
The need for recovery may arise from a range of disaster events, including natural and non-natural disasters such as floods, cyclones, bushfires, acts of terrorism and major health emergencies, as well as animal and plant diseases. Chapter 6: Recovery details this phase of disaster management.
Figure 5.1 The above Diagram shows the correlation between disaster response and recovery phases, levels of activation and stages of operations during a disaster operation.
5.2 Activations and triggers of response arrangements
While local governments are primarily responsible for managing events in their area, the early and pre-emptive activation of support and resources from district and state levels ensures an integrated, active and effective response to disaster affected communities. This is particularly relevant for hazard specific arrangements and large scale disasters which may overwhelm local resources.
Activation of response arrangements occurs when there is a need to:
- monitor potential hazards or disaster operations
- support or coordinate disaster operations being conducted by a designated lead agency
- coordinate resources in support of disaster and recovery operations at local or district level
- coordinate state-wide disaster response and recovery activities.
Activation does not necessarily mean disaster management groups must be convened but may entail providing information to members of those groups about the risks associated with a pending hazard impact.
The decision to activate disaster management arrangements, including the disaster management groups and/or disaster coordination centres, depends on multiple factors including the perceived level of impact to the community.
Activation of response arrangements should occur in accordance with the activation processes detailed in the relevant plan.
5.2.1 Activation of local response
Timely activation of the LDMG is critical for an effective response to a disaster event. The decision to activate depends on several factors including the perceived level of impact to the community.
5.2.2 Activation of district response
The DDC is responsible for activating the DDMG. This would generally occur following consultation with one or more of the following:
- the Chairperson of an affected LDMG
- a member of the DDMG
- the Chairperson of the QDMC.
The DDC should determine when, and to what extent, the DDMG should activate and may bypass initial levels of activation where appropriate to the event.
The activation of the DDMG does not rely or depend on the declaration of a disaster situation or the activation of disaster financial assistance arrangements.
For more information regarding declared disaster situations refer to section 5.5 of this chapter.
5.2.3 Activation of state response
Activations may escalate up from an LDMG through Queensland's disaster management arrangements (e.g. where the LDMG requires additional resources and support) and also escalate down from the QDMC where the disaster event has a broader implication across the state (e.g. cyclone impact zone from Cairns to Rockhampton or flooding from a cyclone impacting majority of the state).
The activation of the QDMC does not rely or depend on the declaration of a disaster situation or the activation of disaster financial assistance arrangements.
5.2.4 Activations of the Australian response
The Department of Home Affairs, through Emergency Management Australia, is the responsible agency for coordinating assistance to states and territories, through the provision of non-financial assistance or defence assistance.
5.2.4.1 Activation of Australian Government non-financial assistance
The Australian Government Disaster Response Plan, known as COMDISPLAN, governs federal non-financial assistance to Australian states and territories in an emergency or disaster.
When the total resources (government, community and commercial) of an affected state or territory cannot reasonably cope with the needs of the disaster or emergency, the nominated official – in Queensland this is the XO, QDMC – can seek non-financial assistance from the Australian Government under this plan.
Provision of this assistance requires authorisation from the Minister responsible for emergency management.
State and territory governments are responsible for coordinating and planning the response to and recovery from a disaster within their borders. The Australian Government accepts responsibility and prepares plans for providing Australian Government non-financial assistance in response to such requests.
5.2.4.2 Defence assistance to the civil community
Sometimes locally based Australian Government resources may be deployed in support of local authorities for limited periods without the need to activate the COMDISPLAN. This may include the provision of Defence Assistance to the Civil Community (DACC) Category 1, which is activated for a set period under local arrangements.
The principle applied to the provision of emergency DACC is that the Australian Government may make its resources (including defence assets) available in situations where state and territory authorities do not have the capacity or capability to manage a disaster or emergency.
The three categories of DACC assistance utilised within disaster operations are:
- Category 1 – Local Emergency Assistance
- Category 2 – Significant Emergency Assistance
- Category 3 – Emergency Recovery Assistance
RG.1.210 Defence Assistance to the Civil Community (DACC Categories) Reference Guide
5.3 Hazard Specific Activations
Where a disaster event requires the activation of hazard specific arrangements based on the lead agency's legislated and/or technical capability and authority, the broader disaster management arrangements may be activated to provide coordinated support to the hazard specific arrangements (e.g. electricity emergency, dam safety incident).
For more information regarding lead agency responsibilities refer to the State Disaster Management Plan 2017 Appendix C.
5.4 Disaster Coordination Centres
The effective management of any disaster or emergency requires strong cooperation, coordination, consultation, collaboration and shared responsibility between individuals, agencies and the community, all committed to showing support, trust and teamwork. Disaster coordination centres ensure disaster operations are coordinated in the most expedient and efficient manner. Disaster coordination centres support disaster management groups at every level of Queensland’s disaster management arrangements – local, district, state and Commonwealth.
5.4.1 Local Disaster Coordination Centre
The LDCC is managed by the local government, staffed by local government employees and supported by agency liaison officers from government and NGOs as appropriate to the local area. The LDCC should have the capability to manage and coordinate resources, information and reporting, and pass RFAs to the DDCC.
5.4.2 District Disaster Coordination Centres
QPS manages the DDCC. The centre is typically staffed by QPS employees and supported by agency liaison officers from state government agencies and appropriate NGOs. The DDCC coordinates the provision of:
- state government support to LDMGs
- resources between LDMGs within the district
- information to the SDCC and LDCCs.
5.4.3 State Disaster Coordination Centre
The SDCC supports the QDMC, SDCG and SDC through the coordination of the state level operational response during disaster operations. The SDCC also ensures information about an event and associated disaster operations is disseminated to all levels in Queensland’s disaster management arrangements.
During disaster response operations, the SDCC is the interface with the Australian Government and other states and territories, coordinating requests for support to DDMGs and through them to LDMGs.
Other state level coordination centres may also be activated to provide information and situational awareness to the SDCC. For example the Queensland Health State Health Emergency Coordination Centre (SHECC) provides situational awareness on behalf of all Queensland Health facilities.
5.4.4 Australian Government Crisis Coordination Centre
The Australian Government CCC coordinates the Australian Government’s whole of government response to major emergencies, and the disaster management policy and operations between Queensland and the Australian Government.
5.5 Declaration of a disaster situation
Sections 64, 65, 66, 67, 67A, 68, 69, 70, 71, 72, 72A and 73 of the Act give the legislative authority for declaring a disaster situation, notice of declaration, duration, extension and ending the disaster situation. The declaration of a disaster situation provides additional powers to nominated officers as per sections 75, 76, 77, 78 and 79 of the Act.
A disaster situation will normally only be declared by the DDC, Minister for Fire and Emergency Services or Premier when it is necessary to exercise those additional powers to prevent or minimise:
- loss of human life
- illness or injury to humans
- property loss or damage
- damage to the environment.
It is not necessary to declare a disaster situation to activate the disaster management arrangements or to obtain financial assistance through established disaster relief schemes.
F.1.214 Form DM2 – Declaration of a disaster situation – district level
F.1.215 Form DM3A – Extension of a disaster situation – district level
F.1.216 Form DM3B – Extension of a disaster situation
F.1.217 Form DM4 – Request to end a disaster situation – district level
F.1.218 Form DM5 – Declaration of a disaster situation – state level
F.1.219 Form DM6A – Extension of a disaster situation – state level
F.1.220 Form DM6B – Extension of a disaster situation – state level
F.1.221 Form DM7 – Request to end a disaster situation – state level
F.1.222 Form DM8A – Authorisation for an individual to exercise declared disaster powers
F.1.225 Form DM10 – Notice of a direction about property
F.1.226 Form DM11 – Authorisation of persons to exercise rescue powers
F.1.227 Form DM12 – Application for Compensation
F1.286 Form DM14 - Notice about deemed approvals under Planning Act 2016
5.6 Public information and warnings
Public information and warnings play a significant role in empowering people to make life-saving decisions before and during an event. While closely linked, the terms ‘public information’ and ‘warnings’ are distinct roles/actions and should not be used interchangeably.
Public information refers to “information provided to the public immediately before, during and after an emergency to reduce the potential impact of an emergency or hazard”.
Public information during the response phase of a disaster management operation provides the community with awareness of hazards and information about events and recommended actions, such as local evacuation arrangements and specific measures available for vulnerable groups (e.g. the elderly, ill and people with a disability).
Traditional media, including radio, television and print, is used for public information in most events, however local governments and emergency service agencies should also use social media, local warning systems, websites and other channels to provide information to stakeholders and the community.
Warnings are specific “point-in-time information about a hazard that is impacting or is expected to impact communities.”
The BoM is responsible for issuing meteorological warnings such as severe weather warnings, tropical cyclone advice, and tsunami warnings. Local governments should constantly monitor these messages to ensure situational awareness. Warnings about incidents such as bushfire, biosecurity threats, chemical spills, dams and water releases are issued by the relevant functional lead agency.
The notification and dissemination of information and warnings does not rely on the activation of a disaster management group. Rather, they should be the automatic responsibility of disaster management agencies, regardless of the status of activation of a disaster management group.
The Watch Desk – the 24/7 disaster monitoring unit in the SDCC – is key in disseminating warnings from BoM to agencies across all levels of Queensland's disaster management arrangements. Additionally, the Watch Desk is responsible for disseminating non-opt-in warnings via the EA system.
D.1.184 Queensland Tsunami Notification Responsibilities Diagram
D.1.176 Emergency Alert: Process Map
5.6.1 Local notification systems
Local governments are responsible for the management and operation of local notification systems and communication channels. Public information and community awareness activities should continue before, during and after an event in line with existing local government processes for local notification systems. These processes, products and public information strategies should be monitored for continuous improvement post the disaster event.
5.6.2 Emergency Alert System
The LDC, DDC, SDC or delegated officer of the referable dam owner (as listed in the approved dam emergency action plan), can request, through the QFES advisor on their respective disaster management group, for an EA campaign to be delivered via landline and text messages to potentially affected people. QFES Incident Controllers may also choose to request an EA campaign for a fire or hazardous material incident.
The state supports local governments, dam owners and other agencies using the EA system, where possible, to draft messages and prepare maps of potential alert areas.
QFES Media holds responsibility for advising the media of the publication of an EA campaign. Once an EA has been issued, QFES Media publishes a ‘web friendly’ version of the message along with details about who requested the message and any relevant links to further information. This information is sent to the media via the QFES Newsroom as well as being uploaded to the Queensland Government Disaster Management website and QFES social media platforms.
For more information regarding Emergency Alerts refer to the Emergency Alert website.
M.1.174 Emergency Alert Manual
5.6.3 Standard Emergency Warning Signal (SEWS)
As a general rule, the following four factors should be present before broadcasting SEWS:
- potential for loss of life and/or a major threat to a significant number of properties or the environment – usually the threat/impact would be the lead item in local news bulletins
- a significant number of people need to be warned
- a significant impact is expected or is occurring at the time
- one or more phenomena are classified as "destructive".
The SEWS sound precedes each emergency warning message sent from the EA system.
The status and effectiveness of SEWS is maintained by limiting its use to certain significant events:
- wind gusts > 125km/h (e.g. tropical cyclones of category 2 and above or their wintertime equivalents)
- storm tide > 0.5m above highest astronomical tide (HAT) (note that the guidelines allow initiating authorities to exercise a degree of flexibility and discretion if there is a significant threat to areas below 0.5m above HAT)
- large hail > 4cm in diameter (corresponding to > golf ball size)
- tornado
- major flood, flash flood and/or dam failure
- intense rainfall leading to flash floods and/or landslides (1-6 hour rainfall total > 50 year average recurrence interval)
- geohazards including effects of earthquakes and/or tsunami waves > 1m (tide dependent)
- major urban and rural fires
- major pollution, hazardous material or biohazard emergency
- other major emergency situations.
In Queensland, the authority to initiate SEWS is restricted to:
- Queensland State Manager BoM for meteorological purposes
- Commissioner, QFES for disaster events and HAZMAT related incidents
- Commissioner, QPS.
When a SEWS warning is issued, the LDC (or nominated delegate) of each local government affected by the warning is to be notified by the initiating authority at the earliest opportunity.
All initiating authorities should notify the QFES State Duty Supervisor or State Duty Officer at the SDCC Watch Desk, who will then contact the relevant local governments.
M.1.171 The Standard Emergency Warning Signal Manual
5.6.4 Tsunami notifications
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.
Emergency radio and television broadcasts may be preceded by the SEWS if authorised by BoM. LDMGs may use local broadcast media to carry tailored messages to their local communities.
Telephone – using local or agency mass phone dialling message systems – is the most appropriate alert, particularly at night.
Sirens are effective for warnings, particularly for locations near the immediate coastline. Local governments may also use appropriate radio, public address systems and variable messaging signs.
M.1.183 Queensland Tsunami Notification Manual
D.1.184 Queensland Tsunami Notification Responsibilities Diagram
5.6.5 Media management during disaster operations
Consistent information from all levels of Queensland's disaster management arrangements is critical during a disaster event.
To ensure the release of appropriate, reliable and consistent information:
- each disaster management group's spokesperson should be approved by the group's Chairperson
- other key spokespersons should be senior representatives of the agencies involved in the event (e.g. LDC, DDC, XO, SDC or their delegates)
- hold joint media conferences at designated times involving key stakeholders, including the Chairperson of the DDMG and the Mayor of the LDMG where geographically feasible
- coordinate media conferences and announcements to avoid conflicts between state, district or local statements
- all relevant agencies should carefully check statistics before release
- each agency is only to comment on its own areas of responsibility.
5.6.6 Australian Warning System
Queensland has adopted the Australian Warning System (AWS) as part of the Queensland Government's response to the Royal Commission into National Natural Disaster Arrangements. The Queensland Government further committed to implementing the AWS, including guidance and training to Local Governments and relevant agencies, in response to the Inspector-General of Emergency Management’s South-East Queensland Rainfall and Flooding Event February–March 2022 Review.
The AWS is a national approach to warnings. It includes:
- consistent warning levels (Advice, Watch and Act, Emergency Warning);
- call-to-action statements;
- icons: and
- colour scheme
to achieve consistency and give people clear and targeted information about what to do to stay safe before, during and after an incident or disaster.
The system builds on existing warning frameworks and applies nationally to bushfire, flood, severe storm, cyclone and extreme heat. It is designed to be adaptable and scalable to other hazards in the future.
For more information regarding Warnings refer to the Australian Warning System website.
Table 2: AWS Warnings Responsibilities
| Hazard | Responsible agency | Comment |
|---|---|---|
| Bushfire | QFES | As the primary hazard agency for bushfire, QFES is responsible for all AWS bushfire warnings in Queensland. |
| Extreme heat | Queensland Health | As the primary hazard agency for heatwave, Queensland Health is responsible for all AWS extreme heatwave warnings in Queensland. |
| Flood, storm and cyclone | Local governments (with State support on request) | Local governments are responsible for all local AWS flood, storm and cyclone warnings in Queensland. Note:
|
Resources to support responsible agencies with consistent implementation of the AWS in Queensland are available on the Disaster Management Portal. Use of the provided AWS compliant templates is strongly recommended.
5.6.7 Differentiating between AWS warnings and Bureau of Meteorology’s (BoM) weather warnings
Under section 6 of the Meteorology Act 1955 (Cth), the BoM is responsible for weather forecasting and “the issue of warnings of gales, storms and other weather conditions likely to endanger life or property, including weather conditions likely to give rise to floods or bushfires.”
The Bureau’s products provide information about a hazard, whereas the AWS warnings will be issued by relevant hazard management agencies and will focus on providing locally specific action-based advice, and information about the expected impacts in the warning area. AWS warnings are not intended to replace BoM weather warnings, as the two products serve different purposes.
5.7 Evacuation
A comprehensive, coordinated and consistent evacuation process is essential as it may be required across more than one LGA. Further, consistent evacuation processes and messages need to be communicated to all residents as well as tourists and other transient populations to minimise confusion and maximise cooperation.
5.7.1 Decision to evacuate
Decision makers analyse event specific information and intelligence and make an assessment on the necessity to evacuate exposed persons. An individual can choose to self-evacuate prior to an announcement of either a LDMG coordinated voluntary evacuation or a DDC directed evacuation.
Voluntary evacuation may be coordinated and implemented by the LDMG in close consultation with the DDC. After a disaster has been declared, the decision to order a directed evacuation lies with the DDC and should be made in consultation with the LDC and based on the Evacuation Sub-plan. The LDMG/LDC has no legislative power to direct an evacuation, however may recommend this action to the DDC.
5.7.2 Warning
An evacuation warning is a message that informs and enables individuals and communities to take appropriate action in response to an impending hazard.
The efficacy of evacuation warnings relies on the community having an understanding of the likely hazards and potential impacts relative to them and their community and what actions they will need to take to prepare themselves for evacuation.
This is generally achieved through an ongoing disaster management community education and awareness program coupled with pre-planned warning arrangements including standard dissemination methods and processes, warning messages and key messages.
5.7.3 Withdrawal
The process of withdrawal involves the physical and coordinated movement of exposed persons to safer locations. Withdrawal requires careful, comprehensive and coordinated planning to support the movement of all exposed persons in a timely manner and to reduce public anxiety and traffic congestion. More specifically, the strategy for withdrawal comprises:
- evacuation routes (including assembly points and signage)
- traffic management
- transport
- security.
Some community members and groups will require assisted withdrawal. These groups should be identified during the analysis of the exposed population. The process for their withdrawal should be documented in the Evacuation Sub-plan.
A systematic grid system must be used to ensure all properties within the affected community are visited and to facilitate regular progress reports to the LDCC.
5.7.4 Shelter
The shelter stage of the evacuation process focuses on the provision of refuge to evacuees within nominated evacuation facility and/or safer location. This stage relates to the receiving, registration and temporary respite or accommodation of evacuees.
The LDMG will identify and activate the most appropriate evacuation facility for shelter relative to the type of event and convey this to the local community within warning messages.
Where a hazard may be threatening to impact on a community and an evacuation is not required, individuals are responsible for deciding whether to shelter in place or find alternative accommodation away from the exposed area. This decision would be based on:
- the current situation (tune into warnings, log onto council website and listen out)
- their specific needs and priorities
- their family and neighbours' needs
- their location.
People who are capable of moving away without assistance are encouraged to relocate outside the exposed area.
The community will expect some form of evacuation facility and/or safer location to be provided if they are directed to evacuate from an unsafe area through an evacuation order.
Extreme weather conditions are unpredictable and, when faced with catastrophic circumstances that exceed pre-planned evacuation facilities and/or safer locations, local governments are encouraged to have already identified a contingency plan for additional facilities/locations available at short notice.
5.7.5 Return
The return of evacuees to their homes requires careful planning to ensure the process is well managed and coordinated. This requires preparation prior to the onset of an event.
The evacuation process does not end when the hazard has passed as it is critical that people return home in a safe manner with as much support and assistance as possible. Where return is not immediately possible, recovery services to facilitate short term and longer term temporary accommodation solutions for displaced community members need to be implemented.
The return process may include:
- return to the area by emergency services and work teams only
- partial return to only some areas of the evacuated area
- temporary return during daylight hours only.
L.1.191 Food Safety in Evacuation Centres
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
5.8 Logistics
When a disaster management group requires logistics support and/or resources to meet operational requirements that are beyond local or district capacity and capability, they must seek assistance through a formal request to the next relevant level (i.e. local to district or district to state).
The group must clearly articulate the resource capability required or the problem and outcome they need using the RFA template. The request must provide sufficient details about description, quantity and delivery time to ensure an efficient and timely response.
State agencies represented on the DDMG are to acquire goods and services through their established departmental acquisition processes, before placing a request with the SDCC for assistance from another agency.
Administrative boundaries may unnecessarily separate resources from impacted communities. Accordingly, disaster management plans should detail all resources located within the area, irrespective of administrative boundaries. This may include neighbouring DDMGs and non-disaster affected LDMGs.
Any proposed cross boundary arrangements should be acknowledged through the relevant planning processes and documented within the disaster management plan, along with strategies for prioritising the allocation of support and resources.
The state should be advised prior to the cross boundary arrangements being implemented, to assist the state-wide coordination of resources.
F.1.198 Request for Assistance Form
5.8.1 Managing requests for assistance
The logistics function in the coordination centre at each level of Queensland's disaster management arrangements plays a central role in managing RFAs. To support this function, Liaison Officers are responsible for coordinating RFAs applicable to their agency and providing advice and assistance on their agency's capabilities and resources. When a RFA is received, the following actions are undertaken:
- assess the RFA:
- determine if it is an appropriate request for the agency or group
- assess the request to ensure it contains all required information to enable the appropriate actioning of the request
- seek clarification from the requesting officer if necessary
- monitor the RFA status:
- monitor and track the request and ensure any issues with its completion are identified and resolved
- ensure accurate recording and reporting on the completion of requests
- interact with other agencies:
- RFA may require action by more than one agency
- Liaison Officers (LOs) should work together to coordinate the completion of the RFA
- Forward plan:
- Consider future operational requirements which generate requests for the group or agency
- undertake contingency planning in anticipation of requests
- gain information from briefings and meetings
- consider determining the availability of resources
Managing and monitoring RFAs ensure the allocation, receipt and return of the resources (if applicable) is appropriate and within established arrangements (e.g. offers of assistance, emergency supply, council to council, evacuation, public cyclone shelter management).
The RFA process is illustrated in Figure 5.3.
Figure 5.3 Managing and monitoring RFA flowchart
5.8.2 Emergency supply
Emergency supply is the acquisition and management of emergency supplies and services in support of disaster operations. It is best delivered by a logistics cell or capability at either the Local, District or State Disaster Coordination Centre, depending on the specific situation.
When local and district operations require additional resources during a disaster, QFES, as the functional lead agency for emergency supply, coordinates the acquisition and management of supplies and services, either through the SDCC Watch Desk or by its logistics capability when the SDCC is activated. Emergency supply is generally conducted as an RFA.
The escalation of requests from local to district to state should not be a strategy to shift financial risk. Uncertainty at the local level about request or resource eligibility under the NDRRA, should be addressed with the responsible QFES Emergency Management Coordinator or Queensland Reconstruction Authority liaison officer.
Supplies should first be sought locally, using the Local Emergency Supply Register developed as part of the LDMP.
T.1.195 Emergency Suppliers Register Template
5.8.3 Council to Council arrangements
Local councils may seek assistance from other local councils to provide personnel or physical resources during a disaster event. The RFA process is used for these council to council requests.
This process facilitates the movement of council managed goods and services including council staff to other council areas.
5.8.4 Resupply operations
When isolation occurs, the Queensland Government may need to act and initiate resupply operations to provide essential items for impacted communities. Resupply operations are expensive and logistically challenging and must be considered as a last resort.
When local and district operations require additional resources, QFES coordinates the acquisition and management of resupply through the SDCC logistics or Watch Desk.
There are three types of resupply operations undertaken in Queensland:
- resupply of isolated communities
- isolated rural property resupply
- resupply of stranded persons.
5.8.4.1 Resupply of isolated communities
This operation occurs when people residing in a community have access to retail outlets but those outlets are unable to maintain the level of essential goods required due to normal transport routes being inoperable as a result of a natural disaster event. In this scenario, the state government contributes to the cost of transporting goods by alternate methods.
This operation ensures essential goods are available to the community through the normal retail facilities within that community. This maintains the safety and wellbeing of humans and domestic animals during the period of isolation.
5.8.4.2 Isolated rural property resupply
Isolated rural properties are groups of individuals isolated from retail facilities due to normal transport routes being inoperable as a result of a natural disaster event. This may include primary producers, outstations or small communities that have no retail facilities and require resupply. The aim of resupply operations to isolated rural properties is to maintain access to essential goods, including medications.
Isolated rural property owners are responsible for placing and paying for their orders with retailers. The LDCC and DDCC facilitate and meet the cost of transport only. Resupply to isolated rural properties may continue for some time after resupply to isolated communities is no longer required.
LDMGs whose area of responsibility contains rural properties that are subject to isolation should ensure that all rural properties are aware of the resupply process, protocols and contacts.
5.8.4.3 Resupply of stranded persons
This operation provides essential goods to individuals who are isolated from retail facilities due to normal transport routes being inoperable as a result of a natural disaster event and are not at their normal place of residence. This is usually stranded travellers and campers.
The resupply or evacuation of stranded persons is coordinated by the QPS. QPS may also use the resources of the LDCC – if it is activated – in response to a disaster event in the LGA.
QPS determines the most appropriate course of action: whether to resupply stranded individuals or to evacuate them to a safer environment. If the LDCC is not activated, QPS will resupply or evacuate stranded individuals and report through the normal police reporting system.
F1.206 Local Government Request for SDCC Resupply Form
5.9 Financial Management
The inherent nature of disaster events typically means finance operations must be conducted within compressed time constraints and other operational pressures, necessitating the use of non-routine procedures.
Despite this, the requirement for sound financial management and accountability does not diminish. Agencies must ensure they adhere to relevant legislation, policies and procedures.
For more information regarding financial management considerations refer to Chapter 4, section 4.4.3: Financial arrangements.
5.9.1 Disaster financial assistance arrangements
There are multiple financial arrangements which, if activated, can provide financial support to Queensland communities impacted by a disaster event through the reimbursement of eligible expenditure.
For more information regarding these arrangements refer to Chapter 7.
5.10 Reporting
5.10.1 Operational reporting
Situational awareness at all levels of Queensland’s disaster management arrangements enables informed operational decision making. This situational awareness is provided by specific event reporting procedures activated during disaster management operations.
A situational report (sitrep) is brief, updated regularly and outlines the details of the disaster, requirements and the responses undertaken.
LOs are required to report on the status of their agency’s involvement in disaster operations by meeting the reporting requirements of both the disaster coordination centre and their agency.
5.10.1.1 Local
During a disaster event, the LDMG, through the operation of the LDCC, is responsible for the preparation and distribution of sitreps. Sitreps capture accurate information from the day's operations including a current and forecast situation.
To do this, LDMG's will need regular and accurate information from operational areas to inform operational responses, forward planning and the contents of the sitrep.
LDMGs will need to allocate appropriate staff in the LDCC to compile the sitrep.
If an event is contained within a LGA and has not progressed to DDCC activation, the DDMG will still have activated to 'Lean Forward' level and the DDC may request LDMG sitreps to monitor and assess the situation. The nature of the disaster and the involvement of the DDMG will determine the timings, complexity and format of the sitrep for a given event.
T.1.228 Local Disaster Management Group Situation Report Template
5.10.1.2 District
The district level has adopted a system of live reporting during a disaster event, recorded directly into the Disaster Incident Event Management System (DIEMS) and therefore no longer produces a standardised sitrep. DIEMS is monitored during activation of the SDCC and relevant information is included in the state level reporting.
The DDCC will need to ensure sitreps are received from activated/affected LDMGs to inform districts’ operational response and forward planning. The DDC will determine and advise LDMGs of the frequency of sitreps, relative to the disaster event.
5.10.1.3 State
During a disaster event, state level reports are prepared and distributed by the SDCC as:
- State update – provides an overall situational awareness to a wide audience (i.e. LDMGs and DDMGs).
- Executive summary – provides a strategic summary to SDC/QDMC, senior executive of QFES and QPS.
- Key messages – produced for use as speaking points by government personnel, Ministers and the Premier.
Figure 5.3 Reporting process
5.10.2 Tasking log
A tasking log to record actions and the responsible agency or officer should be used during a disaster event. The log will be used by the LDC or, in larger operations, the Tasking or Operations Officer in the LDCC.
A tasking log may contain details of:
- the specific operational task to be undertaken
- the date and time of commencement of the task
- the agency and responsible officer to which the task has been delegated
- relevant contact details
- the date and time of completion of the task
- actions taken and contextual comments.
The use of a tasking log helps to ensure, during busy and challenging times, that planned actions have been executed and documented. Tasking logs should be treated as official records and stored and archived appropriately to provide information to any post-event review.
5.11 Debrief
A debrief must be organised at the conclusion of response operations for the local, district and state levels. Debriefs can take varying forms and have different purposes.
5.11.1 Hot debrief
A hot debrief is conducted immediately after response operations conclude. Participants share learning points while their response experiences are fresh. For lengthy response operations, multiple hot briefs may be conducted at suitable intervals to identify issues and develop solutions for immediate implementation.
5.11.2 Post event debrief
A post-event debrief is conducted days or weeks after a response operation concludes, when participants have had time to reflect on and consider the effectiveness of the operation.
All agencies must have an articulated debrief plan and outline options for employee assistance in line with their respective agency's human resources policies.
5.12 Disaster management Systems
Collaboration and interoperability are essential foundations for effective disaster management and consideration should be given to establishing systems, procedures and processes that ensure a continuous flow of accurate, critical, up-to-date, and relevant information between key stakeholders across all levels of Queensland's disaster management arrangements using the guidelines, standards and requirements of the Queensland Government's Chief Information Office.
Groups should consider the requirements of the Queensland Government Chief Information Office; information access and use guidelines and technical standards to ensure sharing of data and information, as well as the interoperability of computer systems that connect using web services.
L.1.128 Queensland Government Chief Information Office
L.1.129 Information access and use (IS33) policy
L.1.130 Information access and use (IS33) guideline
L.1.131 Determining the ex ante release status of information
L.1.132 Information governance policy
The key event management systems used in Queensland to provide platforms for information sharing and situational awareness are discussed below.
5.12.1 Local - information management systems
Local governments use various systems to manage information in LDCCs, from paper-based information management processes, to customised electronic information management systems. Regardless of the system used, local governments should ensure they have the necessary process in place for the correct capture and recovery of information during a disaster event.
One of these systems, Guardian Control Centre, facilitates the management of a multiagency response to a disaster of any scale. Guardian has the capability to enable local disaster coordination staff to receive requests for assistance and information related to a disaster event, record these requests and information, and allocate tasks to various agencies based on the relevant (and already embedded) LDMP.
Guardian also can connect LDCCs to district and state coordination centres. Bulletins, RFAs and council to council support can be managed through the platform in a streamlined manner.
5.12.2 District - Disaster, Incident and Event Management System
DIEMS provides support to the QPS and partner agencies in the management of all types of disasters, major incidents, and planned and unplanned events. DIEMS is an internal state-wide QPS application that is scalable and provides interoperability with other Queensland emergency service agencies, as well as interstate and federal law enforcement agencies. DIEMS is available from any internet enabled device.
5.12.3 State - Event Management System (EMS)
The SDCC Event Management System (EMS) provides a scalable and fit-for-purpose system to coordinate and effectively manage all information about a potential or actual disaster event, and to enable the effective and efficient response of frontline resources and disaster management organisations.
The EMS acts as the single point of truth for all disaster related information, activity recording and reporting and standardises the process of using data and information management during all phases of the comprehensive approach – prevention, preparedness, response and recovery (PPRR).
EMS was developed to integrate state level reporting. This reporting feature has been further adapted to incorporate the Commonwealth disaster impact indicators, such as the National Impact Assessment Model, which can assist the state with requesting extraordinary funding under the NDRRA.
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