Draft Auckland Civil Defence and Emergency Management Group ...
Transcript of Draft Auckland Civil Defence and Emergency Management Group ...
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Table of Contents
1 Introduction .......................................................................................................... 1
1.1 Purpose and Structure ................................................................................................. 2
1.2 The Group Plan Vision and Goals ............................................................................... 2
1.3 Achieving the Vision and Goals ................................................................................... 3
1.4 Relationship to National CDEM Strategy and National CDEM Plan ........................... 4
1.5 Group Plan Development Process and Consultation .................................................. 5
2 Risk Profile ........................................................................................................... 6
2.1 Auckland’s Social Environment ................................................................................... 6
2.2 Built Environment ........................................................................................................ 7
2.3 Economic Environment ................................................................................................ 7
2.4 Natural Environment .................................................................................................... 8
2.5 Auckland’s Hazards ..................................................................................................... 9
2.6 Risk Assessment and Analysis ................................................................................. 10
2.7 Risk Evaluation .......................................................................................................... 12
2.8 Risk Management ...................................................................................................... 13
3 Risk Reduction................................................................................................... 17
3.1 The role of the Auckland CDEM Group and Others in Risk Reduction ..................... 17
3.2 Risk Reduction Principles .......................................................................................... 17
3.3 Current Risk Reduction Activities and Opportunities ................................................ 17
3.4 Legislation, Policies and Plans that Influence Risk Reduction .................................. 17
3.5 Reduction Objectives, Methods and Tools ................................................................ 18
4 Readiness........................................................................................................... 20
4.1 Current Levels of Readiness ..................................................................................... 20
4.2 The role of the Auckland CDEM Group and Others in Readiness ............................ 20
4.3 Readiness Principles ................................................................................................. 20
4.4 Readiness Responsibilities in the Auckland CDEM Group ....................................... 20
4.5 Supporting Plans and Standard Operating Procedures ............................................ 22
4.6 Public Education ........................................................................................................ 23
4.7 Operational Training .................................................................................................. 23
4.8 Exercises ................................................................................................................... 23
4.9 Business Continuity Management ............................................................................. 23
4.10 Readiness Objective, Methods and Tools ................................................................. 23
5 Response ........................................................................................................... 26
5.1 Response Principles .................................................................................................. 26
5.2 Criteria for Response - Levels of Emergency............................................................ 26
5.3 Warning Procedures .................................................................................................. 27
5.4 Activation and Notification ......................................................................................... 28
5.5 Lead and Support Agencies ...................................................................................... 28
5.6 The Role of the Auckland CDEM Group and Other Agencies in Response ............. 30
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5.7 Auckland Controller ................................................................................................... 31
5.8 Emergency Coordination Centre (ECC) .................................................................... 31
5.9 Other CDEM Agencies .............................................................................................. 32
5.10 Public Information Management ................................................................................ 32
5.11 Volunteer Management ............................................................................................. 32
5.12 Welfare Management ................................................................................................ 33
5.13 Lifeline Utility Coordination (LUC) ............................................................................. 33
5.14 Scientific Advisory Groups (SAG) ............................................................................. 33
5.15 Declaration Process .................................................................................................. 33
5.16 Response Support from Outside the Group .............................................................. 34
5.17 Response Objectives, Methods and Tools ................................................................ 34
6 Recovery ............................................................................................................ 36
6.1 Recovery Principles ................................................................................................... 36
6.2 The Role of the Auckland CDEM Group and Other Agencies in Recovery .............. 36
6.3 Transition from Response to Recovery ..................................................................... 36
6.4 Recovery Structure .................................................................................................... 37
6.5 Financial Arrangements ............................................................................................. 40
6.6 Recovery Objectives, Methods and Tools ................................................................. 40
7 Monitoring and Evaluation ................................................................................ 41
7.1 Contextual Framework .............................................................................................. 41
7.2 Monitoring the Auckland CDEM Group Plan ............................................................. 41
7.3 Auckland CDEM Group Plan Evaluation ................................................................... 41
8 Management and Governance .......................................................................... 43
8.1 Auckland CDEM Group Governance Structure ......................................................... 43
8.2 Auckland CDEM Group ............................................................................................. 43
8.3 Coordinating Executive Group (CEG) ....................................................................... 43
8.4 Role of the Auckland Council CDEM Department ..................................................... 44
8.5 Key Appointments ..................................................................................................... 44
8.6 Cooperative Arrangements with Other CDEM Groups ............................................. 46
8.7 Financial Arrangements ............................................................................................. 47
8.8 Recovering Costs in a Civil Defence Emergency ...................................................... 48
8.9 Emergency Recovery Finances ................................................................................ 48
8.10 Financial provisions for meeting Auckland CDEM Group costs in an
Emergency (emergency expenditure funding) .......................................................... 49
Annexures
Annex 1 – The Auckland CDEM Group and its Members
Annex 2 - List of Plans and Standard Operating Procedures
Annex 3 - Glossary and Abbreviations
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1 Introduction
This plan is the Civil Defence Emergency Management (CDEM) Group Plan for Auckland. It is the second
plan prepared by the Auckland CDEM Group1 to meet the statutory requirements of the CDEM Act 20022.
The Auckland CDEM Group boundaries are shown in Figure 1.1.
Figure 1.1: Auckland CDEM Group Boundaries and Current Operational Zones
The Auckland CDEM Group Plan ‘the Group Plan’ is written to provide information for two main
audiences:
Agencies involved in CDEM (emergency services, local government, central government, non-
government organisations).
The general public.
The Group Plan is approved by the Auckland CDEM Group with effect from 31 June 2011. It will be
reviewed by 2016 or earlier, no later than five years after it becomes operative in accordance with s.56 of
the Civil Defence Emergency Management Act 2002 (the Act, or CDEM Act).
1 See Annex 1 for more information about the Auckland CDEM Group and its members.
2 Section 48 of the Civil Defence Emergency Management Act 2002. The first Group Plan was completed in 2005.
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1.1 Purpose and Structure
The Group Plan is a strategic document. It provides a simple framework for everybody involved in
Auckland CDEM to enable management of significant hazards and risks that may affect Auckland by
providing for:
Strengthened relationships between agencies involved in CDEM;
Cooperative planning and action between the various agencies and the community; and
Commitment to deliver more effective CDEM through risk reduction, readiness, response and
recovery.
The Group Plan is set out as follows:
Figure 1.2 Structure of the Auckland CDEM Group Plan
The Group Plan is supported by a range of processes, procedures, polices and other documents that
provide detailed information to the public and CDEM stakeholders about how and why we operate. All
documents referenced in the Group Plan are available for review and a list of them is contained in Annex
2 (List of Plans and Standard Operating Procedures).
There are a variety of terms and abbreviations used throughout the Group Plan. For an explanation of
these refer to Annex 3 (Glossary and Abbreviations).
1.2 The Group Plan Vision and Goals
Vision: A Resilient Auckland
A resilient Auckland will be able to adapt quickly and continue to function at the highest possible level
during extraordinary events3.
GOALS
Goal 1. Reducing risk
to acceptable levels
Goal 2. Increasing
community awareness,
understanding,
preparedness and
participation in civil
defence emergency
management
Goal 3. Ensuring an
effective response capability
Goal 4. Ensuring an
effective recovery capability
3 The vision of the National Civil Defence Emergency Management Plan is ‘A Resilient New Zealand’
Introduction
Vision, context
Risk
Analysis, priorities
Reduction
Reducing risk
Readiness
Preparation, education
Response
Operations
Recovery
Arrangements
Monitoring &
Evaluation
Management &
Governance
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Goal 1: Reducing risk to acceptable levels
Reducing the risk posed by hazards is a key element of CDEM. It is not possible to completely remove
risk but the Auckland CDEM Group will work with communities to reduce risks to acceptable levels by
working to:
Increase knowledge about the risks facing Auckland.
Ensure information about hazards and risks is easily available and understood.
Assist in determining acceptable levels of risk to influence policies such as the Auckland Spatial Plan
and the Regional Policy Statement.
Ensure risks are proactively and responsibly managed.
Goal 2: Increasing community awareness, understanding, preparedness and participation in civil
defence emergency management
A resilient Auckland is only possible if the community knows about hazards and risks. The Auckland
CDEM Group will work with Auckland communities to:
Improve individual, family, community and business preparedness.
Improve community participation in civil defence emergency management.
Encourage community participation in hazard and risk management decisions.
Goal 3: Ensuring an effective response capability
Emergencies do happen, and Auckland must be prepared to manage them. The Auckland CDEM Group
will maintain an effective response capability for emergencies so that:
Response capability continuously develops.
Overall coordination of the response is timely and efficient.
Goal 4: Ensuring an effective recovery capability
When an emergency happens Auckland must be prepared to recover from the effects of the event.
Auckland CDEM Group will maintain an effective recovery capability for emergencies so that:
Recovery capability continuously develops.
The community is able to recover as quickly as possible.
1.3 Achieving the Vision and Goals
The Reduction, Readiness, Response and Recovery chapters of the Group Plan identify objectives,
methods and tools to provide direction for the Auckland CDEM Group’s work programme for the next five
years. The following table summarises the objectives of the Group Plan.
Table 1.1: Auckland CDEM Group Plan Objectives
Reduction
Objective 1 Continue to develop our understanding of what a resilient Auckland looks like and how to measure progress towards realising this vision.
Objective 2 Undertake long term, strategic reduction of the risk from hazards through collaborative planning with stakeholders.
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Objective 3 Improve the understanding of hazards and risks in Auckland and the associated risks and consequences.
Readiness
Objective 1 Improve community preparedness through strong leadership and commitment to CDEM at political and executive levels.
Objective 2 Improve the level of business and community awareness and preparedness through public education and consultation.
Objective 3 Improve community participation and preparedness through community-based planning.
Objective 4 Continue to strengthen co-ordinated and integrated emergency planning by CDEM partners and stakeholders.
Objective 5 Develop a process of recording critical assets and resources and procedures for procurement and deployment in an emergency.
Objective 6 Develop and maintain appropriate documentation to describe key activities, functional responses and protocols in support of the Auckland CDEM Group Plan.
Objective 7 Enhance professional development for key roles within the Auckland CDEM Group through training, exercises and learning from other CDEM Groups.
Objective 8 Assess the capability and capacity of the Auckland CDEM Group on a regular basis and set a realistic target for future improvement.
Response
Objective 1 Provide effective warning systems to enable agencies and the community to respond rapidly to a potential event.
Objective 2 Establish and maintain effective and resilient inter-agency communication networks and processes.
Objective 3 Improve arrangements so that decision making in an emergency is supported by appropriate scientific and technical advice.
Objective 4 Strengthen the information management systems and processes used by emergency response organisations.
Recovery
Objective 1 Strengthen recovery capability and capacity across all agencies and the wider community.
Monitoring the Auckland CDEM Group’s work programme and measuring the resilience of the Auckland
community is discussed in Chapter 7: Monitoring and Evaluation.
1.4 Relationship to National CDEM Strategy and National CDEM Plan
The plan is consistent with the National CDEM Strategy as outlined in Table 1.2.
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Table 1.2: Consistency with the National CDEM Strategy
Auckland CDEM Group Goals National CDEM Strategy Goals
Goal 1: Reducing risk to acceptable levels. Goal 2: Reducing the risks from hazards in New Zealand.
Goal 2: Increasing community awareness, understanding, preparedness and participation in civil defence emergency management.
Goal 1: Increasing community awareness. Understanding preparedness and participation in CDEM.
Goal 3: Ensuring an effective response capability.
Goal 3: Enhancing New Zealand’s capability to manage civil defence emergencies.
Goal 4: Ensuring an effective recovery capability. Goal 4: Enhancing New Zealand’s capability to recover from civil defence emergencies.
The Group Plan is also consistent with the National CDEM Plan and takes into account other guidelines,
codes, regulations and technical standards issued by the Director of the Ministry of Civil Defence &
Emergency Management (MCDEM). The National CDEM Plan sets out the CDEM arrangements
necessary to manage nationally significant hazards and risks and the coordination of CDEM during a
period of national emergency. These arrangements have been taken into account by ensuring Auckland's
operational arrangements link to national planning arrangements. The planning relationships between the
Crown, CDEM Groups and other agencies are set out in the National CDEM Plan.
1.5 Group Plan Development Process and Consultation
This Group Plan is developed from the first Group Plan that was completed in 2005. The following
process was used to ensure all interested parties participated in development of the Group Plan:
Development of the Group Plan started in December 2009 with a review of the existing Group Plan.
During 2010 all members of the Auckland CDEM sector participated in review workshops and were
provided opportunities to comment on the draft Group Plan.
In early 2011 public consultation was conducted in accordance with the requirements of the CDEM
Act.
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2 Risk Profile
The first step in creating a risk profile for Auckland is gaining an understanding of the community and
environment within which this plan operates. This chapter identifies the hazards that require Auckland
CDEM Group management, assesses their risk, and evaluates and assigns a level of priority to each.
This guides the directing of resources and effort for the treatment of risk across the four phases of
emergency management: reduction, readiness, response and recovery.
This chapter contains a summary of Auckland’s risk profile based on a review of the profile contained in
the first Group Plan. The full assessment and accompanying discussion is provided in the Group Plan
supporting document Auckland CDEM 2010 Risk Profile Review.
2.1 Auckland’s Social Environment
Large Rapidly Growing Urban Population
The Auckland region spans from Wellsford in the north to Pukekohe in the south, and is home to
1,303,068 people; one third of New Zealand’s population. Approximately 90% live in urban areas4.
Auckland is unique in New Zealand because it is the largest urban area and biggest economic centre.
The Auckland region is also one of the fastest growing regions in Australasia and is predicted to reach
1.94 million people by 2031.
Young Population
Over 35% of Auckland’s population is aged under 25 years (486,885). Auckland has a lower proportion of
people aged 65 years and over (10%) compared with the rest of New Zealand.
Ethnic Diversity
Auckland contains the largest, most ethnically diverse population in New Zealand. The largest
concentrations of migrants are located in Manurewa, Glen Innes, Three Kings and Mt Roskill.
Socio-Economic Diversity
Auckland has some of New Zealand’s richest and poorest people living within its boundaries. 30%
(392,982) of its population live in deprived areas5 based on New Zealand Deprivation Index scores. The
proportion of people living in households with low income6 in Auckland is over 11% (154,653).
Poorly Prepared for an Emergency
Research indicates that Aucklanders are generally poorly prepared for an emergency with only 7% rated
as fully prepared in the MCDEM 2010 annual survey of national preparedness.
4 Urban areas are defined as being within the Metropolitan Urban Limits.
5 As defined in the Ministry of Social Development’s Social Deprivation Index and measured in an annual deprivation
survey. 6 The proportion of people living in households with gross real income less than % of the median equivalised national
income benchmarked at 2001.
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CDEM Risk Implications
Risk implications of Auckland’s social environment include:
Urban areas have a greater dependence on infrastructure for the delivery of services.
High dependence on other regions for energy, water, food and other necessities.
Growing cultural and linguistic diversity raises important issues for the CDEM sector around how to
ensure effective engagement and inclusion of all Auckland residents.
Low levels of preparedness increase risk.
2.2 Built Environment
Residential Dwellings
In 2006 Auckland had 437,988 occupied private dwellings. In 2008, 76.3% of residential dwellings were
located in urban areas. Detached houses are the main style of house in Auckland region (75.6%), while
23.9% of people live in flats, townhouses and apartments.
Infrastructure
Auckland is well-serviced by an extensive infrastructure network. Auckland’s infrastructure is vulnerable
because some networks are supplied by external sources and the geography of Auckland creates
‘chokepoints’. Most utilities depend on the operation of other utilities to maintain services. For example:
Around 95% of Auckland’s fuel is supplied from Marsden Point, via a single pipeline.
Auckland is an isthmus, limiting north/south transport corridors and the closure of any motorways
creates serious traffic congestion.
Most of the region’s potable water supply relies on one critical main from the Hunua Dams.
Most air and sea transport uses two terminals, the Ports of Auckland, and the Auckland Airport.
CDEM Risk Implications
The increasing intensity of Auckland’s urban development influences risk because higher population
densities in urban areas increase the potential consequences of hazards. Although utility providers have
extensive risk management procedures to ensure continuity of supply, and there are significant capital
projects planned in the next decade that will reduce Auckland’s vulnerability to infrastructure failure, the
risk of infrastructure failure remains high.
2.3 Economic Environment
Business and Employment
Economic activity in the Auckland region contributes an estimated 35% of the national Gross Domestic
Product (GDP). While the economy primarily comprises small and medium businesses, a significant
portion of New Zealand’s largest businesses are located in Auckland. Nationally, Auckland is the primary
distribution and logistics hub for the country. In February 2009, there were 161,104 businesses in the
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Auckland region. The unemployment rate in Auckland ranged from approximately 5-9 % between 2008
and 2010. Research in 2010 indicated that only 17% of business had emergency plans in place7.
National Effect of an Emergency in Auckland
An emergency in Auckland will have significant consequence on the national economy. Economic
modelling conducted in 20088 demonstrated that a volcanic eruption would result in a 47% reduction in
Auckland’s GDP. This equates to a 14% reduction in New Zealand GDP. This is twice the reduction in
GDP that New Zealand experienced during the ‘Great Depression’.
CDEM Risk Implications
Risk implications of Auckland’s economic environment include:
The large amount of businesses located in Auckland increases the number of technological hazards.
The concentration of business activities in certain areas increases the risks presented by some
hazards.
The large proportion of small and medium businesses which are unlikely to be as resilient as larger
organisations combined with low rates of emergency planning increases the potential consequences
of hazards.
Consequences of many Auckland hazards have national implications.
2.4 Natural Environment
General Factors
Auckland covers approximately 16,141km2 of both land and sea, and is approximately 2% of New
Zealand’s total land mass. Auckland is built on an isthmus which creates a congestion point for utilities
and transport networks.
Geology
Auckland is built on a volcanic field. The location of the next volcanic eruption is uncertain and any
volcanic event will have significant impact on Auckland.
The subsurface geology of Auckland is mainly comprised of sedimentary rocks. Overlying this, and
dominating Auckland’s surface geology, is younger marine and terrestrial sediments which are often soft,
highly weathered and faulted, resulting in widespread issues with land subsidence. Auckland’s land
surface has been extensively modified by humans9 changing natural drainage of water. Streams and
rivers drain into relatively small, steep catchments.
Weather
Auckland’s weather is relatively unpredictable and changes quickly. Dominated by weather systems
originating in the Tasman Sea, the prevailing west to south-westerly winds can produce strong wind
gusts, rough seas and persistent rainfall. During summer and autumn, Auckland can also be affected by
sub - tropical storms.
7 University Of Canterbury Organisational Resilience Study 2010.
8 Economic modelling of the economic effect of a volcanic in Auckland conducted as part of Exercise Ruaumoko.
9 2002 Land Cover Assessment.
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Coastal Areas
Auckland has approximately 1,800km of coastline. The coast is a desirable place for development,
exposing communities to a wide range of hazards including storm surge, coastal instability, high winds
and tsunami.
CDEM Risk Implications
Risk implications of Auckland’s natural environment include:
Auckland has a number of natural hazards including volcanic, storms and tsunami.
Auckland is built on an isthmus increasing the potential risks to utility networks.
Auckland’s coastal areas require greater controls on development to minimise people’s exposure to
coastal hazards.
2.5 Auckland’s Hazards
The next step in understanding Auckland’s risk profile is the identification of hazards that could affect the
region. A hazard is something that may cause or aggravate an emergency, creating risks to people,
property or the environment. Hazards can be either natural or technological. Natural hazards occur
when environmental processes like flooding, landslides or tsunami interact with a community.
Technological hazards result from human activities (e.g. infrastructure failure, fire, hazardous substance
spills). Table 2.1 identifies the natural and technological hazards in Auckland that require management
by the Auckland CDEM Group.
Table 2.1: Hazards Requiring Auckland CDEM Group Management
Natural Hazards Technological Hazards
Animal Disease/Epidemic
Cyclone
Drought: Agricultural or water supply
Earthquake
Erosion: Coastal Cliff, Landslide or Land Instability
Flooding: River/Rainfall, Storm Surge, Tsunami (distant or local)
Human Epidemic
Introduced Species/Pest
Tornado
Volcanic Eruption: Auckland Volcanic Field or Distant Source
Crash: Aircraft, Marine, Rail, Road
Criminal Acts: Civil Unrest/Riot or Terrorism
Dam Failure
Fire: Rural or Urban
Hazardous Substance Spill
Lifeline Utility Failure: Airport, Communications, Electricity, Fuel, Gas, Port, Roading, Wastewater or Water Supply
A detailed discussion of Auckland’s Hazardscape and the prime reference for this section is the Auckland
Hazard Guidelines. Other information about hazards can be found on the Auckland CDEM Group’s
website (www.aucklandcivildefence.org.nz).
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2.6 Risk Assessment and Analysis
After understanding Auckland’s social, natural, built and economic environments, and identifying its
hazards, the next step in developing a plan is assessing risk. Risk is the chance of something happening
that will have an impact on either the community or the environment. In general terms, it is measured by
analysing risk in terms of consequence and likelihood.
Risk = Likelihood x Consequences
Auckland’s risks are assessed based on the likelihood of a hazard occurring and its likely
consequences10. Detailed information about Auckland’s hazards is on the Auckland CDEM Group’s
website (www.aucklandcivildefence.org.nz).
Table 2.2 records the risk analysis conducted to complete this plan11. It lists Auckland’s hazards,
assessed likelihood and consequences. The risk associated with hazards in the Auckland region are
presented in further detail in the Group Plan supporting document Auckland CDEM 2010 Risk Profile
Review.
Table 2.2: Hazards and Risks Summary of Analysis, Evaluation and Prioritisation
Hazard Risk Analysis
Likelihood Consequence Risk Rating
Lifeline Utility Failure: Electricity Possible Catastrophic Very High
Human Epidemic Possible Catastrophic Very High
Volcanic Eruption: Distant Source Eruption Likely Major Very High
Cyclone Likely Major Very High
Flooding: River/Rainfall Almost Certain Moderate Very High
Erosion: Coastal Cliff Almost Certain Moderate Very High
Erosion: Landslide/ Land Instability Almost Certain Moderate Very High
Volcanic Eruption: Auckland Volcanic Field Rare Catastrophic High
Animal Disease/Epidemic Possible Major High
Crash: Aircraft Possible Major High
Earthquake Unlikely Major High
10
This is an outline of a much more detailed process required in the Directors Guidelines for CDEM Group Plan
review that uses processes outlined in AS/NZ 4360 Risk Management Standard. 11
This table summarises and extensive project carried out in accordance with the principles outlined in Directors
Guidelines for CDEM Group Plan review and AS/NZ 4360 Risk Management Standard the complete process is
available on request by visiting the Auckland CDEM Groups’ website (www.aucklandcivildefence.org.nz) and using
the ‘Contact Us’ function.
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Hazardous Substance Spill Likely Moderate High
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Lifeline Utility Failure: Water Supply Possible Moderate Moderate
Lifeline Utility Failure: Waste Water Possible Moderate Moderate
Introduced Species/Pests Possible Moderate Moderate
Lifeline Utility Failure: Communications Possible Moderate Moderate
Lifeline Utility Failure: Fuel Possible Moderate Moderate
Lifeline Utility Failure: Roading Possible Moderate Moderate
Criminal Acts: Terrorism Possible Moderate Moderate
Criminal Acts: Civil Unrest/Riot Possible Moderate Moderate
Crash: Rail Possible Moderate Moderate
Flooding: Tsunami (regional/local) Unlikely Moderate Moderate
Crash: Road Likely Minor Moderate
Drought: Agricultural Likely Minor Moderate
Flooding: Tsunami (distant) Likely Minor Moderate
Fire: Urban Possible Minor Moderate
Lifeline Utility Failure: Airport Possible Minor Moderate
Lifeline Utility Failure: Gas Possible Minor Moderate
Lifeline Utility Failure: Port Possible Minor Moderate
Flooding: Storm Surge Possible Minor Moderate
Drought: Water Supply Possible Minor Moderate
Lifeline Utility Failure: Gas Possible Minor Moderate
Dam Failure Unlikely Minor Low
Crash: Marine Unlikely Minor Low
Fire: Rural Likely Insignificant Low
Tornado Likely Insignificant Low
2.7 Risk Evaluation
The analysis above includes a ‘risk rating’ that can be used to prioritise hazards for treatment. A higher
priority means that additional resources should be assigned to management of that hazard. This
information allows the Auckland CDEM Group to direct resources at the areas of highest priority.
Table 2.3 shows the hazard prioritisation. The prioritisation is colour coded, with red being the highest
priority hazards.
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Table 2.3: Hazard Prioritisation
Very High Priority Hazards
Volcanic Eruption: Auckland Volcanic Field Volcanic Eruption: Distant Source Eruption Lifeline Utility Failure: Electricity Cyclone
Human Epidemic Lifeline Utility Failure: Roading Earthquake
High Priority Hazards
Lifeline Utility Failure: Water Supply Lifeline Utility Failure: Wastewater Erosion: Landslide/Land Instability Lifeline Utility Failure: Communications Crash: Road
Hazardous Substance Spill Flooding Tsunami (regional/local) Criminal Acts Terrorism Crash: Aircraft
Moderate Priority Hazards
Animal Disease/Epidemic Criminal Acts Civil Unrest/Riot Lifeline Utility Failure: Fuel Flooding: River/Rainfall Introduced Species/Pests Lifeline Utility Failure: Airport Lifeline Utility Failure: Gas
Lifeline Utility Failure: Port Erosion: Coastal Cliff Flooding: Storm Surge Lifeline Utility Failure: Gas Lifeline Utility Failure: Port Erosion: Coastal Cliff Flooding: Storm Surge
Low Priority Hazards
Drought: Agricultural Fire: Urban Drought: Water Supply Flooding: Tsunami (distant)
Lifeline Utility Failure: Gas Dam Failure Crash: Marine
Very Low Priority Hazards
Fire: Rural Tornado
2.8 Risk Management
An individual hazard risk profile influences the management approach for that hazard. Identifying which
component of a risk is most effective to influence allows appropriate identification of management
mechanisms. Management will include actions to:
Reduce risk , and/or
Ensure readiness, response and recovery.
Both approaches will almost always be required, but a balanced approach ensures effective and economic risk management. Current and possible future approaches are outlined in Table 2.3.
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Table 2.3: Current and Possible Future Risk Management Mechanisms
Earthquake: Current and Possible Future Management Mechanisms
Current Management Mechanisms Possible Future Management Mechanisms
Seismic monitoring (GeoNet)
Research (e.g. paleo-fault surveying)
Infrastructure response and recovery plans
Land use management
Land Information Memorandum
Building Code regulations
Event monitoring
Public awareness and education
National level recovery planning
Hazard and risk mapping (e.g. seismic shaking)
Contingency and response plans
Welfare planning
Recovery planning
Erosion: Coastal Cliff: Current and Possible Future Management Mechanisms
Current Management Mechanisms Possible Future Management Mechanisms
Research (hazard and risk assessment and mapping)
Land use management (regulation and non-regulatory measures)
Land Information Memorandum
Research (hazard and risk assessment and mapping)
Event monitoring
Public education and awareness
Further land use management (regulation and non-regulatory measures)
Erosion: Landslide/Land Instability: Current and Possible Future Management Mechanisms
Current Management Mechanisms Possible Future Management Mechanisms
Land use management
Land Information Memorandum
Research (hazard and risk assessment and mapping)
Event monitoring
Public education and awareness
Land use management
Asset and infrastructure management (i.e. retaining walls, batter slopes, roads)
Contingency and response plans
Flooding: Rainfall/River: Current and Possible Future Management Mechanisms
Current Management Mechanisms Possible Future Management Mechanisms
River control and catchment control schemes
Stormwater asset management plans
Catchment Management Plans
Land use management (regulation and non-regulatory measures)
Flood inundation modelling
Public awareness and education
Warning systems
Rainfall and river level detection systems
Land Information Memorandum
Review of existing flood management schemes
Enhanced structural protection (as defined in existing flood management schemes)
Ongoing maintenance of structural protection.
Land use rules
Contingency and response plans
Risk assessment
Event monitoring
Public presentation of flood inundation maps
Improved land use management
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Flooding: Storm Surge: Current and Possible Future Management Mechanisms
Current Management Mechanisms Possible Future Management Mechanisms
Flood inundation modelling (worst case)
Sea level monitoring
Meteorological warning systems
Land use management (regulation and non-regulatory measures)
Land Information Memorandum
Probabilistic modelling of storm events and inundation
Risk assessment
Event monitoring
Public education and awareness
Further land use management (regulation and non-regulatory measures)
Asset management (i.e. coastal structures)
Contingency and response plans
Flooding: Tsunami (all sources)
Current Management Mechanisms Possible Future Management Mechanisms
Historical tsunami research
Inundation modelling
Education
Contingency planning for response
Event monitoring (GeoNet)
Event monitoring and reporting
Risk assessment
Public education and awareness (online inundation maps, beach signage)
Public warning system
Signage on beach access and identified evacuation routes
Evacuation planning
Welfare planning
Recovery planning
Land use planning
Volcanic Eruption: Auckland Volcanic Field
Current Management Mechanisms Possible Future Management Mechanisms
Seismic monitoring (GeoNet)
Expert scientific advice (AVSAG)
Evacuation planning
Volcanic Alert Bulletins
Hazard and risk programmes (DEVORA)
Eruption event exercises
Response and recovery plans
Public awareness and education
Event monitoring
National level recovery planning
Strengthening the link between the scientific community and response agencies
Volcanic Eruption: Distant Source Eruption
Current Management Mechanisms Possible Future Management Mechanisms
Monitoring of central North Island volcanoes
Volcanic Alert Bulletins
Research (e.g. tephrochronology)
Infrastructure response and recovery plans
Expert scientific advice (AVSAG)
Event monitoring
Public awareness and education
National level recovery planning
Detailed media management/public information plans
Strengthening the link between the scientific community
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and response agencies
Risk assessment and mapping
Eruption event exercises
Contingency and response plans
Public awareness and education
Welfare planning
Building code regulations for ash loading
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3 Risk Reduction
Reduction is identifying and analysing long-term risks to human life and property from hazards; taking
steps to eliminate these risks if practicable, and, if not, reducing the magnitude of their impact and the
likelihood of their occurring. This chapter describes how Auckland will reduce the risks posed by natural
and technological hazards.
Risk reduction measures include:
Educating people about hazards so individuals, families and organisations can reduce risk.
Increasing knowledge of natural hazards through research and investigation.
Incorporating risk reduction measures in land use planning processes.
Incorporating risk reduction measures during preparation of asset and infrastructure management
plans.
Capital works programmes to increase the redundancy critical infrastructure.
3.1 The role of the Auckland CDEM Group and Others in Risk Reduction
The role of the Auckland CDEM Group in risk reduction is to coordinate the activities of its members, the
community and others to achieve long term comprehensive risk reduction.
3.2 Risk Reduction Principles
The following principles underpin the reduction activities outlined in the Group Plan:
Member organisations will operate risk-based management of hazards.
All agencies will work together to reduce risk.
Risk reduction is an essential element of comprehensive emergency management.
3.3 Current Risk Reduction Activities and Opportunities
Risk reduction activities are currently undertaken by all Auckland CDEM Group members. The Auckland
CDEM Group is conducting the following risk reduction activities:
Supporting on-going research about Auckland’s hazards and risks.
Educating the community about hazards and risks.
Advocating for land-use planning to take account of hazards and risks.
Improving inter-agency information sharing about hazards and risks.
Establishment of the Auckland Council is an opportunity to improve the management of hazards and risk
because it allows a consistent regional approach that has been difficult to achieve in the past. In the
future, land-use policy will be centrally coordinated by a single organisation allowing greater efficiency
and economy when advocating for risk reduction.
3.4 Legislation, Policies and Plans that Influence Risk Reduction
Risk reduction is a continuous process, undertaken under numerous statutory and non-statutory
instruments including:
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The Resource Management Act 1991 and its hierarchy of documents including the Regional Policy
Statement and District Plans (which over time will be integrated into the Auckland Council Unitary
Plan).
The Local Government Act 2002 and its instruments including Long Term Council Community Plans.
The Building Act 2004 and the associated Territorial Authority Building Policies.
The Auckland Sustainability Framework (Sept 2007), with its goal of creating resilient infrastructure.
The CDEM Act and its hierarchy of instruments, with this Group Plan as an important component.
Other non-statutory instruments generated by the above statutory documents (e.g. Guidelines,
Structure Plans, Asset Management Plans).
Auckland Engineering Lifelines Group Business Plan and projects.
Business Continuity Management Plans of organisations operating in Auckland.
3.5 Reduction Objectives, Methods and Tools
The Auckland CDEM Group has agreed the following reduction objectives, methods and tools which will
guide its work programme over the next five years.
Table 3.1 Reduction Objectives, Methods and Tools
Reduction Objective
Current Status
What is being done right now
Methods and Tools
What the Auckland CDEM Group wants to achieve in the term of this plan
Objective 1
Continue to develop our understanding of what a resilient Auckland looks like and how to measure progress towards realising this vision.
Supporting the Institute of Geological and Nuclear Sciences Ltd (GNS Science) and Canterbury University research into organisational resilience.
1. Continue to support research into the use of community and organisational indicators in the Auckland region.
2. Work with the research community to identify resilience indicators for at least one other priority sector.
3. A community and organisational resilience survey will be undertaken to measure progress.
Objective 2
Undertake long term strategic reduction of the risk from hazards through collaborative planning with stakeholders.
Risk reduction is currently undertaken through a range of statutory and non-statutory groups.
Auckland CDEM Group members and stakeholders have ongoing programmes to reduce the risk of hazards in Auckland but there still a low level of coordination between agencies.
4. Establish a Risk Reduction Committee (RRC) with membership from across the Auckland CDEM Group.
5. By mid-term of the Group Plan, and in conjunction with the RRC, carry out a review of risk reduction.
6. Group partners to contribute hazard and risk information to a shared database.
7. Encourage the business community to use the tools developed by the Auckland CDEM Group to measure and develop organisational resilience.
8. Encourage business continuity planning across the business community.
9. Advocate for risk reduction to be considered in the development of the Auckland Spatial Plan.
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Objective 3
Improve the understanding of hazards and risks in Auckland and the associated risks and consequences.
As part of the review of the Group Plan, the risk profile for Auckland has been updated.
10. Facilitate information exchange on risk reduction across the Auckland CDEM Group through activities such as hazards forums and workshops on best practice.
11. Support hazard research.
12. Work close Auckland Engineering Lifelines Group to reduce risk.
13. By the term of the Group Plan, develop publicly accessible Geographic Information System (GIS) maps as a repository for existing and future hazards maps and asset information.
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4 Readiness
This chapter describes how the Auckland CDEM Group will work together with the community to plan and
prepare individually and collectively for emergencies.
4.1 Current Levels of Readiness
In overview, the readiness of groups of agencies and individuals involved in CDEM can be summarised
as follows:
CDEM agencies have worked together in a range of real and exercise scenarios since the first
Auckland CDEM Group Plan was developed.
The business community has a variable level of preparedness12.
Like the business community, the levels of public preparedness are variable across Auckland13.
4.2 The role of the Auckland CDEM Group and Others in Readiness
The role of the Auckland CDEM Group in readiness is to coordinate the activities of its members, the
community, and others to ensure that Aucklanders are as prepared as possible for future emergencies.
In general, readiness activities are driven by current levels of readiness and will include:
Ensuring CDEM agencies maintain and enhance their readiness.
Encouraging the business community to become more prepared.
Encouraging the community at large to become more prepared.
4.3 Readiness Principles
The following principles relate to the readiness arrangements outlined in this Group Plan:
All CDEM agencies will coordinate and integrate operational planning.
Plans should be flexible for varying types and scales of emergency.
Increasing readiness by involving volunteers and voluntary organisations in CDEM.
Public education is essential for preparing Auckland’s community.
Community involvement in planning to respond and recover from emergencies is important.
Neighbourhood Response Plans will be an essential part of increasing readiness.
4.4 Readiness Responsibilities in the Auckland CDEM Group
All members of the Auckland CDEM Group have distinct responsibilities for improving Auckland’s
readiness.
4.4.1 Auckland Council CDEM Department
The Auckland Council maintains a CDEM department that supports the Auckland CDEM Group by
performing the following readiness activities:
12
Canterbury University Organisational Resilience Study 2010. 13
Colmar Brunton Annual Survey of Preparedness conducted by MCDEM.
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Maintaining relationships with Auckland CDEM Group Partners and other agencies.
Coordinating and delivering public education.
Developing CDEM strategy and policy.
CDEM training and professional development.
Coordinating the development of inter-agency response plans to specific hazards.
Supporting communities to prepare themselves for emergencies particularly by supporting
development of Neighbourhood Response Plans.
4.4.2 Emergency Coordination Centre (ECC)
Auckland Council provides the Auckland Emergency Coordination Centre (ECC). The ECC is located at
21 Pitt Street, Auckland. Alternate ECC locations are:
7 Elcoat Ave, Henderson
400 East Coast Road, Mairangi Bay
The ECC co-ordinates inter-agency response to an emergency and must be maintained at a high state of
readiness14.
4.4.3 Local Office Readiness Activities
The Auckland CDEM area is divided into operational zones that mirror the emergency services
operational boundaries.
Across Auckland there are local CDEM offices. Local offices are community focused and will be focussed
on building resilience in local communities. Readiness activities of the local offices include:
Coordinate development of community volunteer capability.
Support local communities to develop Neighbourhood Response Plans.
Build strong networks with local board members and integrate them into CDEM preparations.
Educate local communities about hazards and how to prepare for responding to them.
Work with the community to develop robust local recovery plans.
4.4.4 Local Stakeholder Liaison Groups
Local Stakeholder Liaison Groups will be formed on an as required basis so agencies and community
groups involved in Neighbourhood Response Plans can work together to plan and prepare for local
response to emergencies. The Auckland Council CDEM Department will be responsible for providing
administrative support for these groups.
4.4.5 Auckland Welfare Advisory Group (AWAG)
The AWAG is a cluster of social sector government and non-government agencies that work together to
develop regional arrangements for the coordination of community welfare and recovery in the event of an
emergency. Membership is flexible and the current structure is available by visiting the Auckland CDEM
Groups’ website (www.aucklandcivildefence.org.nz).
14
Detailed in 300 Series of Standard Operational Procedures.
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4.4.6 Auckland Engineering Lifelines Group (AELG)
The AELG is a group of more than 20 lifeline utilities which work together to improve Auckland’s
infrastructure resilience. The AELG undertakes projects to assess the impact of various hazards on
Auckland's infrastructure, identify ways to reduce these impacts, and work together to increase
preparedness. More information about the AELG can be found on the Auckland CDEM Groups’ website
(www.aucklandcivildefence.org.nz).
4.4.7 Health Coordinating Executive Group (Health CEG)
The Auckland CDEM Group’s jurisdiction matches three District Health Board (DHB) areas of
responsibility. In order to maximise coordination within the Auckland CDEM Group, the three DHBs have
developed a Health Coordinating Executive Group (Health CEG) which allows them to work together on
initiatives that will improve preparedness.
4.4.8 Emergency Service Coordinating Committees (ESCC)
Auckland has three ESCC coordinated by the NZ Police, one for each of the three Police districts within
Auckland. ESSCs are statutory committees that provide a forum for emergency services to discuss
emergency planning issues and contribute to maintaining the readiness of these organisations.
4.4.9 Hazardous Substances Technical Liaison Committee (HSTLC)
The Auckland HSTLC is chaired and managed by the New Zealand Fire Service (NZ Fire Service). It
provides a mechanism for the hazardous substances industry (enforcement agencies and emergency
responders) to share information, plan for, and debrief after incidents or emergencies involving hazardous
substances. While there are no formal links or reporting requirements between HSTLC and Auckland
CDEM Group, this committee provides technical support for emergency management.
4.4.10 Rural Fire Authority (RFA)
The Auckland Council is a RFA fulfilling the requirements of the Forest and Rural Fires Act 1977 including
the development of rural fire plans outlining risk management, preparation and response measures15.The
RFA is responsible for prevention, restriction, detection and suppression of vegetation fires in Auckland.
The Auckland CDEM Group and Rural Fire have a close relationship and work together to provide
comprehensive emergency management to the community. The Principal Rural Fire Officer is a member
of the Coordinating Executive Group (CEG).
4.5 Supporting Plans and Standard Operating Procedures
A number of Supporting Plans and Standard Operating Procedures (SOPs) give effect to the operational
arrangements outlined in this plan and these are recorded in Annex 2 (List of Plans and Standard
Operating Procedures).
15
Auckland Council Rural Fire Plan 2010.
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4.6 Public Education
Public education is the foundation to improving community readiness. The Practitioners Guide to
Communications and Stakeholder Engagement outlines the Auckland CDEM Group’s approach to public
education.
4.7 Operational Training
Operational training ensures that everybody involved in CDEM understands their roles and can perform
them in an emergency.
4.7.1 ECC Staff and Key Operational Roles
CDEM operational training for organisations and individuals will remain the responsibility of the relevant
agencies/authorities. Training will be provided for key pre-identified operational positions, namely:
Auckland Controller
Staff who may be nominated as an alternate to the Controller
Recovery Manager
Lifelines Utilities Coordinator
Group Welfare Manager
ECC staff
Training content and delivery will be consistent with the MCDEM courses or meet relevant tertiary or
NZQA standards. Wherever possible, training content will be multi-agency and multi-disciplinary.
4.7.2 Urban Search and Rescue Teams (USAR)
Urban Search and Rescue (USAR) is a NZ Fire Service responsibility and they have three task forces,
one of which is located in Auckland. NZ Fire service is supported by volunteer Initial Response Teams.
Auckland has two Initial Response Teams, one in West Auckland, and one on the North Shore.
4.8 Exercises
Exercises contribute to readiness activities and will be conducted on a regular basis. Exercises allow
plans and SOPs to be tested and potential capability gaps be identified. Generally, exercises will be
coordinated by the CDEM Department, but interagency participation is always encouraged.
An annual exercise programme will be developed and coordinated with the MCDEM National Exercise
Programme.
4.9 Business Continuity Management
All government departments, local authorities and lifeline utilities are required to plan for the management
of any significant risk to the continuity of their business. A role of the Auckland CDEM Group is to
encourage these agencies to fulfil this responsibility.
4.10 Readiness Objective, Methods and Tools
The Auckland CDEM Group has agreed the following readiness objectives, methods and tools which will
guide its work programme over the next five years.
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Table 4.1 Readiness Objectives, Methods and Tools
Readiness Objective Current Status
What is being done right now
Methods and Tools
What the Auckland CDEM Group wants to achieve in the term of this plan
Objective 1:
Improve community preparedness through strong leadership and commitment to CDEM at political and executive levels.
Auckland Council has recently been created from the original 7 local councils and 1 regional council. This has centralised CDEM planning and political liaison.
The CDEM Department has also been elevated to a position reporting directly to the Auckland Council Chief Executive.
1. Maintain an Auckland CDEM Group that meets regularly and has an active membership.
2. Provide regular CDEM reports to the Mayor and CEO.
3. Maintain a CEG that has senior officials attending regularly.
4. Conduct quarterly CDEM fora that are attended by elected members and senior executives from CDEM agencies.
Objective 2:
Improve the level of business and community awareness and preparedness through public education and consultation.
Public education in Auckland was centrally coordinated but was delivered by local councils. Research indicates this method has not been effective.
The re-structure of Auckland Council provides an opportunity to change this by using a highly centralised and coordinated approach that mobilises all Council resources.
5. Utilise Auckland Council resources from outside the CDEM Department to implement a comprehensive social networking campaign.
6. Develop and implement a Communications and Stakeholder Engagement Plan within 12 months.
7. Ensure the Auckland CDEM Groups’ website is regularly updated with appropriate hazard and CDEM information.
8. Work with the Council and Local Boards to raise awareness of CDEM issues.
Objective 3:
Improve community participation and preparedness through community-based planning.
Volunteer participation in CDEM activities such as response and welfare teams has been falling.
9. Implement Neighbourhood Response Plans that will encourage local participation in CDEM.
10. Support community planning.
11. Encourage business continuity planning in all business sectors.
12. Encourage communities with Neighbourhood Response Plans to participate in CDEM exercises.
Objective 4:
Continue to strengthen coordinated and integrated emergency planning by CDEM Partners and Stakeholders.
The inter-agency planning groups listed above contribute to Auckland’s generally well coordinated CDEM community. Opportunity always exists to improve coordination.
13. Work together to plan exercises that will test coordination.
14. Ensure that operational planning and procedures are circulated amongst Auckland CDEM Group members.
15. Identify key high risk hazards that do not have contingency plans developed and work together to develop emergency plans.
16. Conduct CDEM fora to discuss coordination issues informally.
17. Use the Auckland CDEM Group and CEG to ensure issues relating to coordination and integration are discussed at senior levels if
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decision-making is required.
18. Encourage all CDEM agencies to use shared emergency management information systems.
19. Procure and maintain a CDEM shared emergency management information system for Auckland.
Objective 5:
Develop a process of recording critical assets, resources and procedures for procurement and deployment in an emergency.
Lack of well-developed logistics planning is an issue identified during the term of the first Group Plan.
Re-structuring Auckland Council has considerably reduced the complexity of logistics arrangements.
20. Develop a record of resources, critical assets, contacts and procedures for procurement and deployment in the first 12 months of the Group Plan.
21. Ensure the Auckland emergency management information system has logistics applications that are realistic and well tested.
Objective 6:
Develop and maintain appropriate documentation to describe key activities, functional responses and protocols in support of the Group Plan.
A current list of Plans and SOPs are listed in Annex 2.
22. Review existing Plans and SOPs and ensure they are updated.
23. Ensure that following Plans identified during the plan review are completed:
Financial Plan
Logistics Plan
Evacuation Plan
Welfare Plan
Building Safety Evaluation SOP
Public Alerting SOP
Warning Systems SOP
Volunteer Management SOP
Group Public Information and Media Management Plan
Objective 7:
Enhance professional development for key roles within the Auckland CDEM Group through training, exercises and learning from other CDEM Groups.
Training in the Auckland CDEM Group is based on the Joint Training Plan developed in 2005. This inter-agency plan focussed on the requirements of key CDEM appointments and provides the standards for training. Key components of professional development are exercise and training in Coordinated Incident Management Systems both of which are coordinated by the Auckland CDEM Group’s Professional Development Sub-Committee.
24. Work with MCDEM to review the training needs across the CDEM sector.
25. Develop annual inter-agency exercise programmes.
26. Maintain and develop the Coordinated Incident Management Systems training.
27. Develop other training that is identified as being required in the review of training needs.
28. Maintain a process for post activity de-briefing and implementing corrective action.
Objective 8:
Assess the capability and capacity of the Auckland CDEM on a regular basis and set a realistic target for future
A capacity and capability review was conducted in 2006 and has been the basis for a considerable development of Auckland CDEM.
29. The MCDEM Capability Assessment Tool will be used in early 2011 to provide baseline data for the Auckland CDEM Group.
30. Annual assessments will be conducted using this tool to measure performance against the benchmark.
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improvement.
5 Response
Response describes the actions taken immediately before, during or directly after a civil defence
emergency to save lives, protect property and support communities to recover. The Auckland CDEM
Group’s response arrangements have been established to ensure that all available resources are
effectively applied for emergencies that affect Auckland. While the first priority during an emergency is
the safety of life, response planning aims to minimise all the effects of an emergency and ensure that
people are given early support to recover. This chapter describes how Auckland will respond to an
emergency.
5.1 Response Principles
Key response principles for the Auckland CDEM Group are:
Coordinated Incident Management System (CIMS) is the basis for inter-agency coordination.
Five pre-agreed levels of response exist.
Response will escalate to the level required to manage the emergency.
Emergency services, welfare agencies and lifelines are expected to be able to function to the fullest.
extent possible during and immediately after an emergency to ensure an effective response.
The Auckland ECC is the mechanism through which resources and support for emergency services,
other agencies and welfare are co-ordinated.
The ECC will be flexible and able to be established to a size appropriate to the emergency.
Emergency response will be in accordance with national objectives and principles set out in the
National Civil Defence Emergency Plan Order (2005).
5.2 Criteria for Response - Levels of Emergency
The Auckland CDEM Group recognises five levels of emergency that are consistent with the National
CDEM Plan:
Level 1: Single agency incident with on-site co-ordination.
Level 2: Multi-agency incident with on-site, local coordination at an Incident Control Point (ICP);
managed by the Incident Controller reporting to the relevant lead agency.
Level 3: A multi-agency emergency led by the Controller. This could be for part or all of Auckland. At
this level, Auckland CDEM Group support and co-ordination may be required, and the incident
may be monitored by the National Controller.
Level 4: A multi-agency emergency with more significant consequences than in level 3. Co-ordination
may be required between agencies, or areas, or both; Auckland CDEM Group ECC level
support and co-ordination is required; Auckland declaration is made or being considered;
national monitoring will occur and national support is available.
Level 5: A state of national emergency exists or the local emergency is of national significance. At this
level, coordination by the National Controller will be required.
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5.3 Warning Procedures
Response is initiated by the receipt of warning. The processes for receiving and broadcasting warnings
are outlined below.
5.3.1 National Warning System
MCDEM is responsible for issuing National Warnings to CDEM Groups and other key emergency
response agencies for events of national significance. The CDEM Group must be capable of receiving,
acknowledging and responding to National Warning messages within 30 minutes at all times, with
procedures in place to facilitate an effective response. The National Warning System is tested by
MCDEM quarterly.
The Auckland CDEM Group maintains a procedure outlined in SOP 300 Activation that demonstrates how
these requirements are met.
5.3.2 Warnings Received from Other Sources
The Auckland CDEM Group may commence response after receiving a warning from any source that is
determined to be credible, such as request for support from a member agency or a scientific alert. There
are also situations in which public warnings will be provided by other agencies. Responsibilities are
outlined in Table 5.1
Table 5.1 Agencies Responsible for Warning CDEM Groups and the Public
Hazard Alerts/ Warnings Monitoring / Surveillance Agency
Volcanic activity alerts and warnings GNS Science
Tsunami (distant and regional source) MCDEM forwards from the Pacific Tsunami Warning
Centre
Public Health Warnings Ministry of Health and District Health Boards
Any hazard that might lead to or worsen an emergency MCDEM and Emergency Services
Forecasting and alerts, advisories for heavy rain,
gales, snow, thunderstorms, swells, surge, volcanic
ash
NZ MetService and National Institute of Water and
Atmospheric Research (NIWA) (forecasting)
Flood warnings for major rivers, including
interpretation of meteorological information
Auckland Council
Adverse weather conditions likely to increase the
possibility of wildfire
Rural Fire
Exotic animal and plant diseases, outbreaks and pest
invasions
Ministry of Agriculture and Forestry (MAF)
Terrorism NZ Police
Hazardous Substances and New Organisms incidents Hazardous Substances Technical Liaison Committee
Major Industrial Accidents Department of Labour
5.3.3 Auckland Group Warning System
Within Auckland, warnings to the public are coordinated through the ECC and could use the following
mechanisms:
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Media releases or emergency status updates via the Auckland CDEM Groups’ website.
Use of local warnings systems such as sirens, text messages or telephone trees.
The key principles are:
The Auckland CDEM Group will provide the public with as much information as possible.
All appropriate means of communication will be used.
Any warning released will be authorised by the Auckland Controller.
5.4 Activation and Notification
The Auckland CDEM Group recognises four modes of ECC activation that are linked with the event
Levels described in Section 5.2. The modes are described in Table 5.2.
Table 5.2: ECC Activation Modes
Mode Name Trigger Level of Emergency
Description
1 MONITOR An emerging threat which may require further escalation. May run concurrently with the Operational Response Group. Declaration
16 unlikely.
Level 1 – 2 Monitor and assess situation across region. 24 hr operations if required. Emergency Services and support agencies notified of activation and of new information as required.
2 ENGAGE An emerging threat which requires a coordinated inter-agency approach. Declaration unlikely.
Level 2 – 3 Actively engaged with the emergency services. 24 hr operations if required. Emergency Services and support agencies engaged.
3 ASSIST A large event has occurred or is imminent and requires a coordinated inter-agency approach. Declaration possible.
Level 3 – 4 24 hr operations likely. All ECC systems monitored while active.
4 MANAGE A large event has occurred in Auckland. Declaration is likely.
Level 3 – 5 Coordinating response across region. 24 hr operations likely. All ECC comms systems monitored. 3 SITREPs/day plus teleconferences and desk to desk comms with emergency services.
SOP 300 Activation provides detailed information regarding activation procedures.
5.5 Lead and Support Agencies
In accordance with CIMS, the principle of ‘Lead Agency’ is applied in response. This means that either:
The agency with a legislative responsibility to manage the type of event occurring is Lead Agency; or
16
Declaration is a technical term meaning that a state of emergency has been declared in a defined area either a
ward, multiple wards or across Auckland. For more detail refer to Section 8.5.1.
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If there is uncertainty about responsibility or response will be improved, and all agencies involved
agree, a Lead Agency may be assigned.
Table 5.3 outlines generally agreed Lead Agency for response functions. The last column lists the
agencies likely to be supporting the Lead Agency to provide the listed response function.
Table 5.3: Agreed Lead and Support Agencies
Response Functions Lead Agency/ Mandate Key Support Agencies
Medical treatment District Health Boards (DHB) Local GPs, Primary Health Organisations (PHOs),
CDEM Group
Public Health Auckland Regional Public
Health Service (ARPHS)
CDEM Group
Rescue
Air Rescue Co-ordination Centre
NZ (CAA)
Volunteer Groups
Sea NZ Police Maritime Unit
(Category I SAR)
Rescue Co-ordination Centre
NZ (Category II SAR)
Maritime NZ, Coastguard, NZ Fire Service, NZ
Defence Force
Land NZ Police Urban Search and Rescue (USAR) Task Force and
local responder/ rescue teams
Structural collapse NZ Fire Service Urban Search and Rescue (USAR) Task Force and
local responder/ rescue teams
Mass fatalities
Disaster Victim
Identification
NZ Police -
Personal effects
reconciliation
NZ Police -
Mortuary services Coroner DHB, CDEM Group
Notification of Dead NZ Police -
Immediate counselling &
social work support
Child Youth and Family
Services (CYFS)
Victim Support and other volunteer groups
Commercial agencies
Reconciliation (of people) NZ Police Red Cross
Evacuation
People NZ Police CDEM Group
Animal Welfare AWAG SPCA, Auckland Council Animal Control
Community welfare
Registration of people CDEM Group Red Cross, DHB (Hospitals), Child Youth & Family
Services (CYFS)
Temporary shelter First 3 days Auckland Council
After 3 days Housing NZ
Housing NZ, AWAG
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Emergency food AWAG Salvation Army, Red Cross, volunteer
organisations
Emergency clothing Red Cross (charter in National
CDEM Plan)
Work & Income, Volunteer organisations, CDEM
Group
Financial support Ministry of Social
Development
CDEM Group
Information management
(Including inter-agency
communication system,
public information and
media management)
Incident Lead Agency has Information Management coordinating responsibility
during an incident
Lifelines co-ordination As above
Utility Services Utility operators CDEM Group
Transportation/Access NZ Police (mandated by
contract to Council for short-
term co-ordination)
Road Controlling Authorities (Council and NZTA)
Buildings & structures
Re-occupancy Council ARPHS, Relevant Consultants, Department of
Labour
Building Safety
Evaluations
Council Relevant Consultants, Department of Labour
Lifeline Infrastructure provision
Transport Networks Council (local roads) and
NZTA (motorways and state
highways)
Contractors, consultants
Utility Services Utility operators (incl. Council) Contractors, consultants
Environment Council -
Marine Oil Spill Maritime NZ (Tier I oil spill)
Harbourmaster (up to a Tier II
oil spill)
Maritime NZ, Coastguard, CDEM Group
Major Maritime Incident Harbourmaster NZ Police Maritime Unit, NZ Fire Service, Ports of
Auckland, Coastguard
5.6 The Role of the Auckland CDEM Group and Other Agencies in Response
The role of the Auckland CDEM Group in response is to coordinate the activities of its members, the
community and others to ensure that response to any emergency in Auckland is:
Centrally coordinated
Timely, effective and makes best use of all available resources
Accurate records are kept for post activity review.
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5.7 Auckland Controller
The Auckland CDEM Group has appointed a Controller in accordance with Section 26 of the CDEM Act.
People currently qualified and formally appointed to fulfil this role and the powers delegated to the
Controller are detailed in section 8.5.2.
5.8 Emergency Coordination Centre (ECC)
Auckland Council provides an ECC that allows all CDEM agencies to work together to plan and
implement response activities.
5.8.1 ECC Functions and Responsibilities
The ECC is broadly structured on CIMS principles and the roles and responsibilities of the functional
teams outlined in Fig 5.1 conform to this doctrine. While the general ECC structure will not change, the
numbers of people in the ECC will vary depending on the emergency. Details of ECC structure and
operational process are recorded in a range of standard operating procedures (See Annex 2).
Figure 5.1 Outline Auckland ECC Structure
In an emergency, the ECC works closely with the National Crisis Management Centre (NCMC) reporting
and coordinating activities with central government through this facility.
5.8.2 Duty Officer
The Auckland Council provides the first point of contact for Auckland through a CDEM Duty Officer
system. The Duty Officer coordinates the first response of the Auckland CDEM Group to warnings.
Detailed information about the Duty Officer’s role is contained in SOP 300 Activation and SOP 310 Duty
Officer Roles and Responsibilities.
5.8.3 Operational Integration with CDEM partners
The primary role of the ECC is the coordination of emergency response activities and this is achieved by
utilising the ECC as central point for inter-agency communication and cooperation. Figure 5.2 shows how
agencies interface with the ECC during response.
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Figure 5.2: Interagency Coordination in Response
5.9 Other CDEM Agencies
CDEM partners and stakeholders will conform to the roles and responsibilities outlined in the National
CDEM Plan and the Guide to the National CDEM Plan.
5.10 Public Information Management
The Controller, through the Public Information Manager, provides timely and accurate information via all
available media. SOP 340 Public Information Management in Response provides detailed information
about how public information will be managed.
5.11 Volunteer Management
Volunteers play a significant part in any response and recovery operation, particularly after large-scale
highly publicised disasters. The Auckland CDEM Group coordinates volunteers through the ECC, but
does not co-ordinate spontaneous volunteers. Generally these volunteers will be referred to other
agencies with the capability to co-ordinate their efforts. Refer to SOP 230 Volunteer Management for
more details.
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5.12 Welfare Management
In an emergency, large numbers of people may suffer bereavement, physical injury, and separation from
families. They may also experience personal loss of housing, household goods including clothing and
other property, employment and income. Evacuation of an affected area may require care of displaced
persons.
Welfare is managed at a regional and national level through the Auckland Welfare Advisory Group
(AWAG) and National Welfare Coordination Group (NWCG). These provide integrated welfare services
to individuals and communities through response and recovery. SOP 210 Group Welfare Plan provides
detailed information regarding this function.
5.13 Lifeline Utility Coordination (LUC)
Lifeline coordination processes in the ECC are provided by the Lifeline Utility Coordinator (LUC), who is
appointed by the Controller. The LUC role includes:
Coordinating the flow of information between Lifeline Utilities and the ECC.
Providing the Controller with technical advice about Lifeline Utility capabilities.
Transmitting the Controller's priorities for action to relevant lifeline utilities in a clear, cohesive
manner.
Refer to the SOP 350 Lifelines Coordination Protocol for more detail about this function.
5.14 Scientific Advisory Groups (SAG)
The Auckland CDEM Group has established Scientific Advisory Groups (SAG) for volcanic eruptions and
tsunamis. The SAGs assist the Controller with specialist planning and intelligence in the event of an
emergency. Refer to the Volcanic and Tsunami Contingency Plans for more detail.
For other hazards (e.g. pandemic and hazardous substances), other agencies will lead the first response
and may therefore develop specific advisory groups.
5.15 Declaration Process
Declaration means establishing a ‘state of emergency’ across all or part of Auckland. Declaration means
that the Controller immediately gains the range of legal powers listed in the CDEM Act17.
The factors that would be considered before making a declaration are contained in the Directors
Guidelines for Declaration which is available on the Auckland CDEM Group’s website
(www.aucklandcivildefence.org.nz). In summary a declaration could be made because:
A clear present danger to people and property exists.
The powers available to a Controller in the CDEM Act are required to mitigate that danger.
CDEM agencies agree that there is a requirement to declare.
If Declaration is required, the Controller will contact a person authorised by the Auckland CDEM Group to
Declare (Listed in Section 8.5.1).
17
Details of Declaration are provided in the CDEM Act and in the Director Guidelines for Declaration. Both
documents are available on the Ministry of Civil Defence & Emergency Management website.
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Forms for the declaration, extension and termination of a state of local emergency are maintained in the
ECC and by the Duty Officer.
The decision to declare (or extend or terminate) a state of civil defence emergency will be publicised in
accordance with the Public Information Management procedures as soon as practicable (s. 73(3) CDEM
Act).
When the ‘state of emergency’ is no longer required the declaration is ‘Terminated’. This process is done
officially and marks the transition from response to recovery.
Further details on declaration processes are available in the MCDEM Directors Guidelines: Declaration
DGL05/06.
5.16 Response Support from Outside the Group
In a large emergency the Auckland CDEM Group will require support from agencies external to its
boundaries.
5.16.1 Relationship with Neighbouring CDEM Groups
An emergency in Auckland may require resources from other CDEM Groups. The Auckland CDEM
Group has developed Memoranda of Understanding with the Northland, Waikato and Bay of Plenty
CDEM Groups. These record the intent to provide assistance to each other in an emergency.
5.16.2 National Assistance
An emergency in Auckland is likely to be very heavily supported by national resources that will be
coordinated by national working groups including:
The Domestic and External Security Committee (DESC)
The Official’s Domestic and External Security Committee (ODESC) that reports to DESC
The National Crisis Management Centre (NCMC)
The National Welfare Coordination Group (NWCG)
The Auckland CDEM Group maintains liaison with these groups and the details of how they operate can
be found in the Guide to the National Civil Defence Emergency Management Group Plan.
5.16.3 International Assistance
In large event international aid is likely to be offered. International aid will be coordinated by the National
Controller through the NCMC.
5.16.4 Debrief and Reporting
At the conclusion of any event, an organisational and agency debrief will take place. If a declaration has
been made, the CEG will be responsible for managing the debrief process and will report findings to the
Auckland CDEM Group. A copy of the findings will be communicated to all relevant agencies.
5.17 Response Objectives, Methods and Tools
The Auckland CDEM Group has agreed the following response objectives, methods and tools to guide its
work programme over the next five years:
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Table 5.3 Response Objectives, Methods and Tools
Response Objective Current Status
What is being done right now
Methods and Tools
What the Auckland CDEM Group wants to achieve in the term of this plan
Objective 1:
Provide effective warning systems to enable agencies and the community to respond rapidly to a potential event.
Public warnings will be issued across Auckland through the media.
Some local areas have tsunami siren systems installed.
1. Review the Auckland CDEM Group’s public alerting requirements.
2. Use the Public Alerting Guide developed by MCDEM to develop an Auckland public alerting plan.
3. Review current activation procedures and integrate them with the developing emergency management information system.
Objective 2:
Establish and maintain effective and resilient inter-agency communication networks and processes.
Currently the Auckland CDEM Group is very reliant on tele-communications.
VHF radios have good geographic coverage but do not provide a good mechanism for inter-agency communications.
Satellite communications systems are wide spread with both voice a data capabilities available.
4. Advocate for the development of an ‘all agency radio network’.
5. Ensure all agencies engage with the development of the emergency management information system.
6. Develop the satellite communications capabilities of all stakeholders.
Objective 3:
Improve arrangements so that decision making in an emergency is supported by appropriate scientific and technical advice.
The Group has an established Volcanic Scientific Advisory Group.
7. Develop a Tsunami Advisory Group.
8. Improve communications redundancy with scientific advisory groups.
Objective 4:
Strengthen the information management systems and processes used by emergency response organisations.
The ECC uses a web-based interface for information management during an emergency (WebEOC).
MCDEM has invested in a national emergency management information system (E.Sponder) which is available for use by all CDEM Groups.
9. Develop WebEOC capability until E.Sponder is available.
10. Work with MCDEM to implement ESponder.
11. Advocate for agencies to utilise the Auckland CDEM Group emergency management information system
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6 Recovery
This section outlines how the Auckland CDEM Group will coordinate recovery after an emergency.
Recovery entails re-establishing the community’s quality of life, taking opportunities to meet future
community needs and reducing future exposure to hazards and risks.
6.1 Recovery Principles
The Auckland CDEM Group has adopted the following guiding principles for recovery activity:
Minimise consequences of an event as quickly as possible.
Address the emotional, social, economic and physical wellbeing of individuals and communities.
Reduce future exposure to hazards and associated risks.
Ensure recovery is embedded within the remaining 3R’s of reduction, readiness and response.
Options for better or safer development of the affected community are analysed and considered.
Ensure effective communication with all stakeholders.
Recovery planning post event will commence as soon as possible after response is underway.
Transitioning from formal recovery activity to ‘business-as-usual’ activity will be a priority in the
recovery planning for a specific event.
Community engagement, recognising the diverse needs of groups within a community, is integral to
recovery planning for a specific event.
6.2 The Role of the Auckland CDEM Group and Other Agencies in Recovery
The role of the Auckland CDEM Group in recovery is to coordinate the activities of its members, the
community and others to ensure that recovery from an emergency in Auckland is:
Centrally coordinated by the Auckland Council.
Timely, effective and makes best use of all available resources.
6.2.1 Lead Agency for Recovery
The lead agency for recovery from a significant event in Auckland is the Auckland Council.
6.3 Transition from Response to Recovery
The recovery phase should commence immediately after response. The principle aim of transition from
response to recovery is to maintain continuity of coordination. In Auckland, this is achieved by the
Controller and Recovery Manager both being members of the Auckland Council CDEM Department, and
working together to plan an integrated approach to response and recovery.
The formal transition from response to recovery will be planned prior to a Declaration being terminated
and will involve:
Briefing the Mayor and Chief Executive.
The Chief Executive confirms the terms of reference of the Recovery Manager including delegations.
Termination of response including any Declaration currently in force.
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6.4 Recovery Structure
In Auckland, recovery is directed by the Mayor and utilises Auckland Council’s established business
continuity arrangements to set policy and manage recovery.
Figure 6.1 Outline of Recovery Structure
6.4.1 The Mayor, Council Governing Body and the Auckland CDEM Group
The Mayor, supported by the Council Governing Body will lead recovery and will work with Auckland
CDEM Group partners and stakeholders to set recovery priorities and policy.
6.4.2 Auckland Council Chief Executive and Executive Leadership Team (ELT)
The Chief Executive is responsible to the Mayor and the Auckland Council for ensuring that recovery
priorities and policy are enacted. The Chief Executive will work with Auckland Council’s ELT (including
CDEM representation) to plan the recovery strategy.
In general terms, the role of the Chief Executive and ELT is to:
Support the Mayor and Council Governing Body to set policy by providing information regarding the
impact of an emergency and providing guidance on priorities.
Ensure coordination of recovery policy between agencies through the Auckland CEG.
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6.4.3 Auckland Council Crisis Management Team (CMT)
In any emergency, Auckland Council will establish the CMT (including the Manager CDEM. It is
responsible for ensuring that council works together to manage emergencies. CMT will be activated
during response to emergencies. It will continue to operate in the recovery phase and will be responsible
for coordinating Auckland Council recovery activities. The Recovery Manager will work closely with CMT
to ensure that the activities of both council and external agencies are coordinated.
In general terms, the role of the CMT is to:
Support the Chief Executive and ELT to support the Mayor by assessing the impact of an emergency
and providing information to set priorities for recovery.
Ensure coordination of recovery effort within council.
Work with the Recovery Manager to ensure council recovery activities are coordinated with the work
of external agencies represented in the Recovery Management Organisation (See Section 6.4.7).
6.4.4 Recovery Manager
The Recovery Manager is responsible for coordinating inter-agency recovery activities. The Recovery
Manager will prepare a specific Terms of Reference (ToR) appropriate to the event prior to transition.
The ToR will be authorised by the Chief Executive. A template for the ToR is contained in SOP 400
Recovery Plan.
In general terms, the role of the Recovery Manager is to:
Support the Mayor and governing body of council to set policy by assessing the impact of an
emergency and providing guidance on priorities.
Establish Auckland Council’s Recovery Management Organisation to coordinate the operational
activities of all agencies external to council.
Ensure coordination of recovery effort between agencies.
Any financial delegations or delegated legal duties or powers will be specified in the Recovery Manager
ToR. The Recovery Manager reports to the Chief Executive of Auckland Council.
6.4.5 The role of Auckland CDEM Group members and Others in Recovery
The role of the Auckland CDEM Group members in recovery is to work together so that all activities are
coordinated between CDEM Group members, the community and other agencies to ensure that recovery
is as rapid as possible. Agencies outside of Auckland Council will be coordinated using the Recovery
Management Organisation outlined in Section 6.4.7.
It is expected that all members will support the Recovery Manager to carry out recovery including the
following tasks:
Develop and implement a Recovery Action Plan specific to the event.
Establish the Recovery Taskforce to staff the Group Recovery Office.
Identify appropriate advisors and establish the Community and Sector Expert Reference Group.
Provide for direct community input into recovery.
Establish reporting processes and schedules.
Control expenditure and maintain accountability.
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Identify and obtain resources and facilities required to support recovery.
Formulate recovery policies and strategies.
6.4.6 Recovery Plan
Auckland has a Recovery Plan that outlines the detailed arrangements for recovery activities. A copy of
the Recovery Plan can be found on the Auckland CDEM Groups’ website
(www.aucklandcivildefence.org.nz).
6.4.7 Recovery Management Organisation
The Recovery Manager has three support groups available to assist in planning and coordinating
operational aspects of recovery:
Recovery Taskforce – the core group of support staff in the Recovery Office.
Community and Sector Expert Reference Group (CASERG) – expert advisors who provide
guidance to the Recovery Manager on strategy, policy and priority recovery activities. The CASERG
will include leaders from the affected community.
Recovery Action Group – the organisations carrying out community recovery activities, grouped into
task groups to co-ordinate their activities and report to the Recovery Manager.
The ToR and membership for these support groups are in SOP G400 Recovery Plan. The interactions
between the various groups are shown in Figure 6.2.
Figure 6.2 Recovery Management Organisation
All task groups report to the Recovery Manager, who will establish some or all of these groups during the
response phase for effective transition from response to recovery.
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6.5 Financial Arrangements
6.5.1 Expenditure Management
An expenditure management regime will have been established during the response phase. This regime
must be closed off and reconciled when the emergency is over then reopened for the recovery phase. In
both phases there is a need for rigorous management to record details of expenditure to support claims
for government subsidies and repayments.
6.5.2 Disaster Relief Fund
An Auckland Disaster Relief Fund is established and can be activated in an emergency. It will receive
donations then disperse funds to the affected communities. Disbursement of funds will be controlled by a
committee with membership from CASERG.
6.5.3 Emergency Expenses
Government policy on the reimbursement of local government expenditure for recovery activities is set out
in the National CDEM Plan.
6.5.4 Recovery Exit Strategy
The end-state of any recovery activity is the transition from recovery to ‘business-as-usual’. This
encourages the affected community to take control of local matters sooner rather than later with a sense
of empowerment that is vital to recovery.
Therefore, all recovery operations should be planned with this goal in mind and all steps taken to develop
and implement an exit strategy. The Recovery Manager will work with the CASERG and Recovery Task
Groups to determine:
An anticipated date to cease formal recovery activity.
A list of outstanding tasks at this date and arrangements in place for completing them.
Recommended activities to reduce the risks from any future emergencies and contribute to building
community resilience.
6.6 Recovery Objectives, Methods and Tools
The Auckland CDEM Group has agreed the following recovery objectives, methods and tools which will
guide its work programme over the next five years.
Table 6.1: Recovery Objectives, Methods and Tools
Recovery Objective
Current status
What is being done right now
Methods and tools
What the Auckland CDEM Group wants to achieve in the term of this plan
Objective 1:
Strengthen recovery capability and capacity across all agencies and the wider community.
A group Recovery Plan has been developed to guide recovery planning.
A Recovery Forum is operating.
1. Maintain a Recovery Plan over the life of this Group Plan.
2. Conduct an annual Recovery Forum.
3. Engage regularly with agencies involved in the Recovery Structure.
4. Exercise recovery annually.
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7 Monitoring and Evaluation
Monitoring and evaluation is a key element in any effective policy or risk management process. It
provides assurance that the Auckland CDEM Group is complying with its obligations, achieving its
objectives and making progress towards its goals and those of the National CDEM Strategy. Monitoring
and evaluation are different processes:
Monitoring is establishing, checking, controlling and keeping record of what has happened.
Evaluation is measuring effectiveness and establishing and assessing why outcomes have or have
not occurred.
7.1 Contextual Framework
Monitoring and evaluation is a requirement of Auckland CDEM Groups under the CDEM Act
(section 17(1)(h) and section 37(1)). Relevant benchmarking documents include:
The CDEM Act and the National CDEM Strategy
Auckland CDEM Group goals and objectives from this Plan
Auckland CDEM Group work programmes
Public surveys and analysis
Long Term Council Community Plans
The CDEM Capability Assessment Tool
7.2 Monitoring the Auckland CDEM Group Plan
The Auckland CDEM Group Plan will be monitored in the following ways:
An annual check will be conducted by the Auckland Council CDEM Department to ensure the plan is
still accurate and legislatively compliant
An annual report against the Objectives, Methods and Tools will be provided to the CEG and
CDEMG.
7.2.1 Monitoring Legislative Compliance
The Auckland Council CDEM Department is responsible for monitoring compliance between the Group
Plan and the CDEM Act, and other relevant legislation and amendments.
7.3 Auckland CDEM Group Plan Evaluation
It is not expected that by the end of this Group Plan’s life, the Vision will have been fully realised or all the
objectives met.
Progress will be evaluated regularly as follows:
An annual report against the Objectives, Methods and Tools will be provided to the CEG and
CDEMG.
Every year the MCDEM developed CDEM Capability Assessment Tool will be used to evaluate the
Auckland CDEM Group.
The Auckland CDEM Group will conduct research to assess business resilience to inform
development of the next Group Plan.
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The Auckland CDEM Group will conduct research to assess community resilience to inform
development of the next Group Plan.
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8 Management and Governance
The Auckland CDEM Group is a statutorily established forum for coordinating the activities of all CDEM
agencies. The management and governance arrangements outlined in this chapter seek to streamline
decision making, and involve people and organisations in CDEM activities as effectively as possible.
8.1 Auckland CDEM Group Governance Structure
As a unitary authority, the Auckland Council has established the Auckland CDEM Group meeting the
requirements of Section 12 of the CDEM Act.
Figure 8.1 Auckland CDEM Group Statutory Committees
8.2 Auckland CDEM Group
The Auckland CDEM Group is statutory committee of Council under Section 12 of the CDEM Act with
overall responsibility for the provision of CDEM within Auckland. It comprises five elected members of the
Auckland Council and a number of co-opted observers from CDEM agencies invited to attend by the
committee.
The functions of this committee are clearly laid out in Section 17 of the CDEM Act.
8.3 Coordinating Executive Group (CEG)
The CEG comprises senior representatives of the Auckland Council and Auckland CDEM Group member
organisations. It ensures a strategic overview of CDEM in Auckland and is able to commit the resources
of the representative organisations to agreed projects and tasks. The CEG is responsible to the Auckland
CDEM Group.
The functions of this committee are clearly laid out in Section 20 of the CDEM Act. The CEG has no
prescribed operational role in CDEM.
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8.3.1 CEG Membership
CEG is an officer’s committee and has a number of agencies that must be represented:
Auckland Council Chief Executive
NZ Fire Service Regional Commander
NZ Police Regional Commander
Chair of the Health CEG (representing Auckland Regional Public Health Service, St John, Counties-
Manukau DHB, Waitemata DHB, Auckland DHB)
In the Auckland CDEM Group the following agencies have also had representatives, co-opted by the
CDEM Group, to the committee under the provisions of Section 20 of the CDEM Act.
Manager CDEM and others as delegated by the Auckland Council Chief Executive
Chair of the AELG
Regional Commissioner, Ministry of Social Development (MSD)
Principal Rural Fire Officer
Ministry of Health Regional Emergency Management Adviser
Ministry of Civil Defence and Emergency Management Regional Emergency Management Adviser
Section 20 of the CDEM Act allows other members to be co-opted as members feel is appropriate.
8.4 Role of the Auckland Council CDEM Department
The Auckland Council CDEM Department supports the CEG by providing the following functions:
Advice and technical support to the CEG and the Auckland CDEM Group.
Project coordination and management.
Coordination of regional CDEM policy and its implementation.
Managing contracts entered into on behalf of the Auckland CDEM Group or CEG.
Managing and administering Auckland CDEM Group staff on behalf of the Auckland CDEM Group.
External liaison with the CDEM sector.
Coordination of monitoring and evaluation activities.
Preparation (in consultation with CEG) of the annual report of the Auckland CDEM Group’s activities,
budget and performance to the Auckland CDEM Group for adoption.
The detailed activities and annual work programme of the ECC are available from the Auckland Council.
8.5 Key Appointments
There are a number of key appointments that the Auckland CDEM Group must, or may make under
Section 25 and 26 of the CDEM Act. These are outlined below:
8.5.1 Persons Authorised to declare a state of emergency
The persons authorised to declare a state of emergency are in the following order (depending on
availability):
Mayor, Auckland Council
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Deputy Mayor, Auckland Council
Other elected members of the Auckland CDEM Group
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8.5.2 Controller
The person appointed by the CDEM Group to the role of Controller is Clive Manley. The Controller’s
functions are listed in Section 28 of the CDEM Act.
The Controller is delegated the following powers from the CDEM Act by the Auckland CDEM Group:
The authority to coordinate the activities (as required to perform his/her duties) detailed in Section
18 (2) of the CDEM Act under the direction of the CEG.
The authority to require information provided under Section 78 of the CDEM Act.
The authority to provide the information required to provide the necessary information under oath for
a warrant to be issued under Section 78 of the CDEM Act.
The authority to receive information seized under Section 81 of the CDEM Act.
The authority to exercise all emergency powers conferred on the Group by Section 85 and shall make
reports at such intervals as are directed by the Chair of the Group. For avoidance of doubt the
Controller has the specific emergency powers conferred on Controllers Sections 88-92 and
Section 94 of the CDEM Act.
8.5.3 Alternate Controllers
The persons appointed as Alternate Controllers are:
Harry O’Rourke
Ian Maxwell
Daryl Griffin
Paul Green
8.5.4 Recovery Manager
The person appointed to the role of Recovery Manager is Clive Manley.
The Alternate Recovery Manager is Jane Lodge.
The Manager, CDEM is authorised to appoint a Recovery Manager when required.
8.6 Cooperative Arrangements with Other CDEM Groups
The Auckland CDEM Group seeks to actively strengthen its relationships with other CDEM Groups,
particularly neighbouring regions (Northland, Waikato and the Bay of Plenty).
The Auckland CDEM Group will provide support and assistance when requested to other CDEM Groups
with respect to their CDEM functions. This will include, but not necessarily be limited to:
Assistance in the event of an emergency.
Sharing relevant hazards information.
Seeking and promoting mutual operational arrangements such as training opportunities and standard
operating procedures.
Memorandums of understanding have been developed between Auckland, Northland and Waikato CDEM
Groups.
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8.7 Financial Arrangements
Auckland Council is the sole financial contributor to the Auckland CDEM Group. The Auckland Council
funds a CDEM Department that:
Provides administrative and related services under Section 24 of the CDEM Act for the Auckland
CDEM Group.
Completes an annual work programme.
Provides centralised coordination in an emergency.
Auckland Council financial arrangements and policies guide all expenditure and reporting. The
cooperative nature of CDEM requires inter-agency collaboration and Auckland CDEM Group members
have the opportunity to provide input into CDEM Department activities through CEG. CDEM costs can be
incurred in three ways:
Day-to-Day CDEM Department Activities:
The cost of providing administrative and related services under Section 24 of the CDEM Act.
The cost of reduction and readiness activities performed by the CDEM Department to fulfil currently
agreed level of service.
Projects:
The annual work programme based on the Auckland CDEM Group Plan.
Projects that are identified as priorities that are not based on the Auckland CDEM Plan.
Emergency Expenditure:
Expenditure incurred by the Auckland CDEM Group in the lead up to, during and after an emergency.
8.7.1 Day-to-Day CDEM Department Activities
Levels of service and resourcing are established by Auckland Council using the Auckland CDEM Group
Plan, Long Term Council Community Plan and Annual Plan processes.
8.7.2 Projects
Projects and resourcing are established by Auckland Council working with external agencies represented
at the CEG using the Auckland CDEM Group Plan, Long Term Council Community Plan and Annual Plan
processes.
8.7.3 Emergency Expenditure
In the lead up to a declared emergency (Level 3) the Auckland CDEM Group is responsible for funding:
All costs associated with the resourcing, activation and operation of the ECC.
All reasonable direct expenses incurred by the Controller.
All reasonable direct expenses (such as travel, meals and accommodation) incurred by recognised
technical advisors when they are requested to attend meetings.
During a declared emergency (Level 4) the Auckland CDEM Group is responsible for funding:
All costs associated with the resourcing, activation and operation of the ECC.
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All reasonable direct expenses incurred by the Controller.
All reasonable direct expenses incurred by recognised technical advisors.
Costs associated with the use of resources and services under the direction of the Controller.
A clear record of who authorises any expenditure; its purpose and so forth is required to be kept (refer to
National Civil Defence Plan, Part 2 and SOP 201: Financial Management Procedures - Response).
8.7.4 Agency Expenditure and Marginal Costs
Unless agreed otherwise, the costs of completing any specific agency actions required by legislation and
outlined in the Auckland CDEM Group Plan are the responsibility of the authority or agency concerned.
Likewise the ‘marginal costs’ incurred by agencies supporting a lead agency during an event are carried
by the authority or agency concerned.
8.8 Recovering Costs in a Civil Defence Emergency
In an emergency CDEM agencies are expected to meet their own operational costs as outlined in the
Guide to the National CDEM Plan. Other emergency related costs are met in the first instance by
Auckland Council.
Upon termination of the emergency, the Controller will recommend to the Auckland CDEM Group which
costs could reasonably be met by the Auckland Council CDEM Group and which costs may be recovered
from central government.
Generally response costs that can be recovered from central government fall into two categories:
The cost of caring for the displaced = costs associated with accommodating, transporting, feeding and
clothing evacuees. Central government will reimburse 100% of agreed costs.
Other response costs = other expenditure associated with responding to an event, not including
recovery activities. Government will reimburse councils for 2/3 of these agreed costs above a threshold
calculated as 0.01% of the Net Rateable Capital Value (NRCV) of the area affected.
Auckland Council’s NRCV is approximately $ 32,000,000,000 which means that the threshold for central
government reimbursement is approximately $ 64,000,000.
Information regarding government financial support in response costs is contained in Section 26.4 of the
Guide to the National CDEM Plan.
Volunteers suffering personal injury, or damage to, or loss of property, while carrying out emergency work
under the authority of the Controller, may also submit claims to the authority employing the Controller, or
in the case of the Controller, to the Auckland CDEM Group.
The procedure for claims is outlined in the National Civil Defence Plan, Part 1, Annex C.
8.9 Emergency Recovery Finances
The Recovery Manager will recommend to the Auckland CDEM Group which recovery costs could
reasonably be met by the Auckland CDEM Group, and which costs could be recovered from the
Government. Claims for government assistance are to be made by the organisation incurring the
expenditure or, in the case where there are agreed Auckland CDEM Group costs, by the Auckland CDEM
Group. Any Government involvement will be contingent upon the principles and conditions set out in
Paragraphs 9-11 of Part 2 of the National Civil Defence Plan.
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Government assistance for recovery from damage to private property and productive enterprises is only
available if it can be shown that the risk was un-insurable and hardship can be demonstrated. If it
becomes apparent that there will be a significant number of people suffering financial hardship and more
immediate relief is required, the Auckland CDEM Group may establish a Mayoral Relief Fund (refer to
Chapter 6: Recovery).
8.10 Financial provisions for meeting Auckland CDEM Group costs in an Emergency
(emergency expenditure funding)
The Auckland CDEM Group has a committed ten million dollar emergency expenditure financial facility.
This facility can be used by the Controller to fund initial and immediate emergency response and recovery
cost.
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Annex 1: The Auckland CDEM Group and its Members
This annex outlines the membership of the Auckland CDEM Group.
What is the Auckland CDEM Group?
The CDEM Act requires the establishment of regional CDEM Groups that are consortiums of all agencies
involved in delivering emergency management services. CDEM Groups consist of emergency services,
lifeline utilities, local and central government agencies and non-governmental organisations. Members
work together to ensure that emergency management is well planned and effective. Members have
different levels of participation some being partners that work closely and consistently with other members
and others being stakeholders that work together on an as required basis. The Auckland Council is
responsible for funding and coordinating the activities of the Auckland CDEM Group.
Membership of the Auckland CDEM Group
Partners
Auckland Council
NZ Police
NZ Fire Service
St John
District Health Boards
Auckland Regional Public
Health Service
Ministry of Civil Defence and
Emergency Management
Rural Fire Authority
Red Cross
Salvation Army
Ministry of Social
Development (including its
constituent ministries)
Amateur Radio Emergency
Corp
Ministry of Health
Stakeholders
Coastguard
New Zealand Defence Force
Earthquake Commission
NZ Insurance Council
Mana Whenua Groups
Housing NZ
Ministry of Education
Inland Revenue
Auckland Chamber of
Commerce
Employers and
Manufacturers Association
Ministry of Agriculture and
Forestry
Maritime Safety Authority
Land Transport Safety
Authority
Civil Aviation Authority
NZ Customs
Department of Labour
Ministry for the Environment
Department of Corrections
Accident Compensation
Corporation
Ministry of Transport
Register of Engineers for
Disaster Relief
Geological and Nuclear
Sciences
National Institute for Water
and Atmospheric Research
Met Service
Society for Earthquake
Engineering
Building Research
Association of NZ
Institute of Professional
Engineers
Society for the Prevent of
Cruelty to Animals
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Lifeline Utilities
For the purposes of Section 60 of
the CDEM Act 2002 this list names
Auckland’s Life Line Utilities:
a)Specific Entities (Part A,
Sechedule1, CDEM ACT 2002)
Radio NZ Ltd
Television NZ Ltd
Auckland Airport Ltd
Ports of Auckland Ltd
b) Entities carrying on specific
business (Part B, Schedule 1,
CDEM Act 2002):
Producer, supplier or distributers of
manufactured or natural gas:
Vector Ltd
Provider of a road network:
Auckland Transport Agency
Transit NZ
Generator or distributer of
electricity:
Transpower Ltd
Vector Ltd
Counties Power Ltd
Genesis Power Ltd
Mighty River Power Ltd
Contact Energy Ltd
Supplier or distributer of water:
Watercare Ltd
Provider of telecommunications
network:
Telecom NZ Ltd
Vodafone NZ Ltd
Telstra Clear Ltd
2degreess Ltd
Whoosh
Vector Ltd
Kordia Ltd
Producer, Processor or Distributer
of Petroleum Products:
NZ Refining Co Ltd
Wiri Oil Services Ltd
BP Oil Ltd
Mobil Oil Ltd
Greenstone Energy Ltd
Caltex NZ Ltd
Gull Petroleum Ltd
Joint User Hydrant Installation
Shell Wynyard Wharf
Provider of a Rail Network or
Service:
Kiwi Rail Ltd
Auckland Transport Agency
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Annex 2: List of Plans and Standard Operating Procedures
The Auckland CDEM Group Plan is a strategic document and details of operational plans, procedures and
processes are contained in the supporting documents listed below:
SOP 100 Reduction Guideline
SOP 200 Training
SOP 210 Welfare Plan
SOP 220 Logistics Plan
SOP 230 Volunteer Management*
SOP 240 USAR Arrangements
SOP 250 Tsunami Contingency Plan
SOP 260 Volcanic Contingency Plan
SOP 270 Fuel Contingency Plan
SOP 300 Activation
SOP 310 Duty Officer
SOP 320 Operational Response Group
SOP 330 Emergency Coordination Centre Manual
SOP 340 Public Information Management in Response
SOP 550 Alternative National Welfare Arrangements
SOP 350 Lifeline Protocols
SOP 360 Managing International Aid via Auckland Airport*
SOP 400 Recovery Plan
SOP 500 Communications and Stakeholder Engagements Guide
SOP 510 Financial Arrangements
SOP 520 Public Education Plan
SOP 540 Emergency Coordination Centre Business Continuity Plan
SOP 550 Guide to Business Continuity Planning*
18
18
SOP marked with * are under review or not complete at the time of publication.
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Annex 3: Glossary and Abbreviations
Parts of the Auckland CDEM Group Plan contain terminology that may not be generally understood by plan users. Where technical terms are used in the plan these have been explained through footnotes in the text. This annex provides definitions of commonly used terms and abbreviations used throughout the plan.
Term / Abbreviation
Definition
AELG Auckland Engineering Lifelines Group A voluntary group comprising lifeline utility organisations in the Auckland Region.
The CDEM Act or the Act
The Civil Defence Emergency Management Act 2002
Auckland CDEM Group
Civil Defence Emergency Management Group established under section 12 of the Civil Defence Emergency Management Act 2002. A committee with membership from Auckland Council and observers co-opted from key CDEM stakeholder agencies.
CEG Coordinating Executive Group established under Section 20 of the Civil Defence Emergency Management Act 2002. It a committee of senior officers from Auckland Council and senior executives from key agencies involved in CDEM. It is the central committee for coordinating between agencies.
CIMS Co-ordinated Incident Management System The national mandated procedures and processes for agencies to work together in a multi-agency response.
ECC Emergency Coordination Centre A CDEM headquarters from which operations are planned and coordinated.
Emergency Services
The New Zealand Police, New Zealand Fire Service, National Rural Fire Authority, rural fire authorities and hospital and health services
CDEM Department
Auckland Council is responsible for funding the coordination of CDEM in Auckland. It funds a team of professionals responsible for supporting inter-agency and community CDEM coordination.
Controller The person appointed Controller under s 26 of the Act with those functions set out in s 28 of the Civil Defence Emergency Management Act 2002.
Recovery Manager
Person appointed to manage the Recovery Management Organisation outlined in Section 6.4.7
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Lead Agency The organisation with the legislative authority; or because of its expertise and resources, agreed authority; primarily responsible for control of an incident.
LUC Lifeline Utility Coordinator
Readiness Actions taken to ensure communities know what to do in the event of an emergency, there are effective warning mechanisms, and responding organisations are well trained and practiced in preparation for an emergency.
Recovery The co-ordinated process of reconstruction of infrastructure and the restoration of social, economic and physical well-being of a disaster-affected community.
Reduction The application of techniques and management principles to reduce the probability and/or the consequence of an occurrence.
Response Actions take in anticipation of, and immediately after an emergency or disaster to ensure that its effects are minimised and that people affected are given immediate relief and support.
Operational Zone
One of three zones identified in Auckland that match emergency services districts being:
1. North/West Zone
2. Central Zone
3. Southern Zone
Risk The likelihood and consequences of a hazard.
SAG Scientific Advisory Group providing planning and intelligence assistance in the event of a civil defence emergency.
SOP Standard Operating Procedure refers to a document describing a formally established set of operational procedures that are the commonly accepted method for performing certain emergency management tasks.
TAG Technical Advisory Group providing planning and intelligence and logistic assistance to the Lead Agency in the event of an emergency or incident.