Brisbane City Council

Local Disaster Management Plan

Introduction to Disaster Management
in Brisbane City Council

2015

Brisbane City Council Local Disaster Management Plan

Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015

Foreword

Despite its enviable lifestyle, Brisbane is occasionally subjected to disasters, both natural and non-natural. When an event occurs, local government has primary responsibility for managing the impacts within its boundaries making it vital to have effective and coordinated disaster management arrangements.

The Brisbane City Council(Council)Local Disaster Management Plan(LDMP) documents the arrangements required under Queensland’s Disaster Management Act 2003(the Act). Council’s LDMP outlines the framework, system and processes and specifies roles and responsibilities for disaster management in Council’s Local Government Area. Furthermore, it provides a framework of sub-plans for our most likely threats (such as severe storm, flood and bushfire) and for the recovery phase following an event.

Council’s LDMP is based upon best practice by addressing all phases of disaster management: prevention, preparedness, response and recovery. It focuses on minimising impacts on the disaster-affected community by ensuring a coordinated effort from all levels of government and non-government entities with responsibilities or capabilities in disaster management.

This is a dynamic, risk-based plan that will be kept up to date to reflect changes in legislation and best practice and to reflect the knowledge gained from the occurrence and management of natural and non-natural disasters globally.

The plan has been developed by Brisbane City Council in cooperation with our strategic partners in the Federal Government, Queensland State Government, neighbouring local authorities and key stakeholders in corporate and commercial industry.

Disasters are inevitable but, with effective mitigation strategies, prudent planning, effective rehearsal, cooperation and communication, we can enhance the resilience of our community and minimise the adverse consequences of any likely event.

Graham Quirk

LORD MAYOR

Chairman

Brisbane City Local Disaster Management Group

Review of Plan

This plan has been developed by, and with the authority of, Brisbane City Council pursuant to Sections 57 and 58 of the Queensland Disaster Management Act 2003 (the Act). The plan conforms to the State Plan guidelines. Section 80(1) (b) of the Act requires Council to approve its Local Disaster Management Plan.

The plan has been reviewed and accepted.

………………………………………….……………………………….

Bob GeeDate

Assistant Commissioner, Queensland Police Service

District Disaster Coordinator

Authority to Plan

Brisbane City Council has a legislative responsibility to develop a Local Disaster Management Plan in accordance with Section 57(1) of the Act.

The Brisbane City Council Local Disaster Management Plan has been prepared under the direction of the Brisbane City Local Disaster Management Group.

The plan is approved and recommended for distribution.

………………………………………………………………….

Graham Quirk Date

LORD MAYOR Brisbane City Council

Chair, Brisbane City Local Disaster Management Group

Amendments

  1. Proposed amendments to this LDMP are to be forwarded in writing to the Manager, Disaster Management Office (MDMO), Office of the Lord Mayor and CEO, Brisbane City Council, GPO Box 1434, Brisbane 4001.
  1. The MDMO may approve minor amendments to this plan.
  2. Proposed amendments that significantly affect the intent of this plan, roles and responsibilities or external agencies will follow the approval and review cycle as outlined on page vi.
  3. Approved amendments are to be listed in the table below.
  4. Version control of the Local Disaster Management Plan is managed by Council’s Disaster Management Office. Reissue of this introduction to the Plan following amendment or review will be recorded in the table below and advice of reissue will be distributed to the Disaster Management distribution list. Recipients should take all appropriate action to ensure they are in possession of the most recent version, and that previous versions in both hard copy and electronic forms are archived accordingly. Further information can be requested by contacting the Disaster Management Office.

Brisbane LDMP Version Control

Version / Date / Reviewed by / Endorsed by / Accepted by / Approved by / Comments
2.0 / May 2013 / Manager, Disaster Management Office / Local Disaster Coordinator / District Disaster Coordinator / Chair, Brisbane LDMG / 2013 official version
2.1 / October 2013 / Manager, Disaster Management Office / Local Disaster Coordinator / District Disaster Coordinator / Chair, Brisbane LDMG / Preamble moved before table of contents. Annual exercise details added.
2.2 / June 2014 / Manager, Disaster Management Office / Local Disaster Coordinator / District Disaster Coordinator / Chair, Brisbane LDMG / Minor amendments to departmental names
3.0 / September 2015 / Manager, Disaster Management Office / Local Disaster Coordinator / District Disaster Coordinator / Chair, Brisbane LDMG / 2015 official version

Distribution List

To / Copy
Electronic / Hard / To / Copy
Electronic / Hard
Lord Mayor / 1 / 1 / Queensland Police Service / 2
Chief Executive Officer (CEO)/Local Disaster Coordinator (LDC) / 1 / 1 / Queensland Fire and Emergency Services / 2
Executive Officer to CEO / 1 / Department of Communities, Child Safety & Disability Services / 1
Chief of Staff / 1 / 1 / Queensland Health / 2
State Emergency Service –
Brisbane City Unit / 1 / Brisbane District Disaster Coordinator / 2 / 1
Chief Operating Officer, QLD Urban Utilities / 1 / Moreton Bay Regional Council / 1
Divisional Manager,
City Planning and Sustainability / 1 / Redland City Council / 1
Divisional Manager,
Organisational Services / 1 / QBuild / 1
Manager,
Asset Services / 1 / Manager, Construction Branch / 1
Manager,
Corporate Risk Management / 1 / Disaster Management Office / 1 / 2
Manager,
Corporate Communications / 1 / Divisional Manager
Brisbane Lifestyle / 1 / 1
Divisional Manager,
Brisbane Infrastructure / 1 / Divisional Manager, Brisbane Transport / 1
Local Disaster Coordination Centre x 3 locations / 6 / 3 / Cr Julian Simmonds, Chairman Finance, Economic Development & Administration Committee / 1
Councillor Adrian Schrinner,
Deputy Mayor / 1 / 1 / Manager, Urban Amenities / 1
Executive Manager
Office of the Lord Mayor & CEO / 1 / 1 / Manager, Commercial & Operational Services / 1
Field Services Group, Disaster Response / 1

The approved Plan will be made available to the public via Council’s corporate website and libraries.

References

Table 1 summarises a comprehensive, but not exhaustive list of the many inter-related documents that provide authority for the Brisbane City Council Local Disaster Management Plan.

Table 1: Disaster Management Reference List

References
A. / The Queensland Disaster Management Act 2003 (the Act)
B. / Queensland Local Disaster Management Guidelines, September 2012
C. / Emergency Management Australia, Australian Emergency Management Series, Australian Government
D. / Brisbane City Council Brisbane Incident Management System (BIMS)
E. / Queensland Disaster Management Strategic Policy Framework
F. / Australian Emergency Manuals Series, Manual 17 – Multi-Agency Incident Management
G. / Australian Emergency Manuals Series, Manual 43 – Emergency Planning
H. / 2013-2014 Queensland State Disaster Management Plan

Review

This Local Disaster Management Plan (LDMP), together with its supporting Standard Operating Procedures (SOPs), will be reviewed, practised and updated annually in accordance with the requirements mandated by the Brisbane Local Disaster Management Group (LDMG) and the Act.

  1. This LDMP is to be reviewed:
  • On activation of an event requiring the use of this Plan
  • On activation of similar disaster management plans in other states, territories or overseas (where considered possible)
  • Annually in accordance with the requirements mandated by the Brisbane LDMG and the Act.
  1. The MDMO is to brief relevant stakeholders and the Brisbane LDMG on the results of testing this plan.
  2. The Chair of the Brisbane LDMG is to approve this Plan as per the following review cycle.

Approval and Review Cycle

Note: The approved Plan will be distributed via Council’s corporate website and libraries.

Table of Contents

Foreword

Review of Plan

Authority to Plan

Amendments

Distribution List

References

Review

Approval and Review Cycle

Table of Contents

1.0Introduction

1.1A City-Wide Plan

1.1.1Brisbane Vision 2031

1.1.2Our Disaster Management Policy, Capability and Interoperability

1.1.3A Prepared Community

1.2Our Effective Disaster Management Response, Recovery and Compliance

2.0Aim of Plan

2.1Scope

2.2Objectives

2.3Legislative Compliance – Disaster Management Act, 2003

2.3.1Disaster Response Capability

2.3.2Annual Exercise

2.4Brisbane LDMG Responsibilities for Implementing the Plan

2.5Brisbane District Disaster Management Group

2.6Queensland Disaster Management Committee

2.7State Lead Agencies

2.8External Agencies

2.9Alignment With State and Local Disaster Management Plan

3.0Principles of Disaster Management – Brisbane City Council

3.1The Comprehensive Approach

3.2All Hazards Approach

3.3All Agencies Approach

3.4Local Disaster Management Capability

3.5A Prepared and Resilient Community

3.6Additional Core Principles of Disaster Management

3.7Consequence Management

Appendix 1 – Acronyms and Abbreviations

Appendix 2 – Glossary

Page 1 of vii

Brisbane City Council Local Disaster Management Plan

Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015

1.0Introduction

Brisbane, the capital city of Queensland, is located on the coastal plain east of the Great Dividing Range in South East Queensland, Australia. Its eastern suburbs line the shores of Moreton Bay. The Central Business District (CBD) lies just 27 kilometres from the mouth of the bay.

Brisbane is a subtropical river city with hot, humid summers and dry, mild winters.Its subtropical climate makes Brisbane prone to severe weather events and a variety of natural disasters and hazards. During the summer months severe storms with hail, damaging winds and heavy rainfall are common. These storms can result in flooding from the Brisbane River, local creeks, storm surges along coastal areas and overland flow flooding. Much of Brisbane is built on low-lying flood plains with the highest hills measuring 300 metres.

The Brisbane River is the major river passing through the city. The city includes the floodplains of 38creeks as well as the southern floodplain of the South Pine River. There are also thousands of overland flow paths in the hilly areas of the city.

Brisbane’s low-lying bayside suburbs are exposed to flood risks from storm tides associated with cyclones and east coast lows which create large scale mounding of ocean water due to prevailing winds from one direction. Storm tides may last for several days causing abnormally high water levels for periods longer than the daily tidal cycle. Notable storm surge events occurred in Moreton Bay in 1891, 1928, 1948, 1974 and again in 2013.

There have been many river floods, most notably the large floods in 1893, 1974 and 2011. There has also been flooding in the various creeks, waterways and overland flow paths due to intense shorter duration rainfall. It is certain that there will be major floods again in the future.

Other natural events that can affect Brisbane include bushfires, king tides, earthquakes, heatwaves, landslides and dust storms.Brisbane’speak risk for bushfires usually occurs in spring and early summer(September to January each year)[1].

Brisbane LGA has a population of just over one million (1,146,787as at 30 June 2014[2]), and had an estimated population growth of 1.5% in 2014.

1.1A City-Wide Plan

1.1.1Brisbane Vision 2031

Brisbane Vision 2031 is Council’s long-term community plan for the city. It details the aspirations for the city and outlines ideas for achieving this vision.

The main priorities for Brisbane Vision 2031 are to:

  • Maintain or improve quality of life for the Brisbane community;
  • Ensure that Brisbane has the services and infrastructure to meet the liveability and sustainability challenges of the future; and
  • Provide an overarching plan of action for Council, its partners and the people of Brisbane for the next eighteen years.

The themes of the Brisbane Vision include aspirations for Brisbane to be ‘our friendly, safe city’. These themes outline targets for Council and residents to achieve by 2031, including:

  • Our friendly, safe cityBy 2031, Brisbane is a more resilient city – a city that is safe, confident and prepared for natural disasters. By 2031 effective emergency and disaster management is integrated across South East Queensland to ensure that Brisbane has the capability to prepare, plan, respond and recover in all-hazard risk environments to disasters impacting on the city, in accordance with state legislation.

Council’s Local Disaster Management Plan’s principles of prevention, preparedness, response and recovery provide a strong basis for meeting the liveability and sustainability challenges of the future, as well as contributing to creating and maintaining a ‘our friendly, safecity’.

1.1.2Our Disaster Management Policy, Capability and Interoperability

Council takes a proactive approach to building community resilience and awareness of a range of disaster risks and will continue to develop and maintain its approach. It will do this in the following ways:

  • By testing and integrating disaster management plans and arrangements to meet its legislative responsibilities under the Act;
  • By building strong relationships with external partner agencies and among its internal business units to ensure interoperability; and
  • Via ongoing training and exercise programs for Council's Local Disaster Coordination Centre (LDCC) and Regional Incident Management Teams (RIMTs), the focal point for coordination of Council's response to any event. Also, for the Brisbane City Local Disaster Management Group (Brisbane LDMG), chaired by the Lord Mayor of Brisbane, to ensure that the political and executive arms of Council are familiar with their roles and responsibilities and are trained to effectively respond to, or recover from, disaster events.
  • A Prepared Community

Council is committed to preparing the community to understand its hazard specific risk and has developed multiple tools to help residents determine their risk, and undertake the necessary precautionary actions to prepare for disaster events. Council’s community initiatives include:

  • Brisbane Ready for Summer Campaign. Each year Council undertakes an All Hazards Preparedness Campaign encouraging residents to prepare their homes, yards and families for the natural hazards experienced during Brisbane’s subtropical summer storm season;
  • Severe Weather Early Warning Alert Service. Council offers a free early warning alert service to notify residents of impending severe weather events by SMS, email and/or voice message to landline telephones;
  • Creek Flood Early Warning Alert Service. Council offers a free early warning alert service to notify residents who are prone to creek flooding of potential flooding to encourage residents to undertake preparation activities; and
  • Council works with vulnerable communities who are at risk of isolation in severe weather events, encouraging them to prepare Community Support Centre Plans and to establish community networks to improve communication and resilience.

1.2Our Effective Disaster Management Response, Recovery and Compliance

To develop effective disaster management response and recovery capabilities and meets its legislative responsibilities, Council will need to:

  • Work with the State Government and other stakeholder agencies to cultivate a multi-disciplinary approach to the response and recovery to any event that has a major community consequence;
  • Maintain a comprehensive disaster management risk register;
  • Take a proactive approach in building community resilience and awareness of a range of disaster risks;
  • Implement mitigation strategies and recommendations from disaster risk management studies;
  • Develop and maintain disaster and emergency plans to assist emergency services and other response agencies to carry out their statutory responsibilities;
  • Conduct a training and exercise program to test and validate the local disaster management arrangements; and
  • Manage and expand the Brisbane SES Unit to be an effective, safe and efficient organisation to meet its statutory and community responsibilities.

2.0Aim of Plan

The primary focus of Brisbane City Council’s Local Disaster Management Plan is to effectively manage and mitigate the effects of disasters on the community wherever possible or practical, while preparing to respond when disasters do occur. Risk-based plans and management arrangements have been developed with a community focus. The risk assessment methodology can be found in the Chapter 1B of the plan. Hazard mitigation and residual risk treatment will be identified as part of the emergency risk management process.The LDMP is based upon a flexible and scalable ‘all hazards’ approach, encompassing the key principles of prevention, preparedness, response and recovery.

Local government underpins the Queensland disaster management system. During a disaster, local government provides initial support for the affected community until its resources are fully committed. State support is then requested, and is provided by State agencies in accordance with their core functions through the District Disaster structure. Similarly, Commonwealth support can be requested if State resources are exhausted or not available.

The aim of this Plan is to minimise the effects of, coordinate the response to, and manage the recovery from, a disaster or major emergency affecting the City of Brisbane. It provides information on the disaster management arrangements, identified risks and details on planning, response and recovery activities of Council and other supporting agencies.

2.1Scope

The scope of this Plan is to ensure appropriate strategies are developed and established to minimise the adverse effects of a disaster or major emergency on the Brisbane community and ensure that the optimum outcomes are delivered. In 2014, the CBD Emergency Plan was added to the LDMP. The CBD Emergency Plan is an inter-agency Plan, which sees Council supporting Queensland Police Service, who take the lead role in most instances (see chapter 2 for more details).

This Plan is divided into the following chapters:

Chapter 1 / Introduction to Disaster Management in Brisbane City Council
Chapter 1A / Disaster Arrangements and Brisbane Incident Management System (BIMS)
Chapter 1B / Emergency Risk Management
Chapter 1C / Brisbane Community Profile
Chapter 2 / CBD Emergency Plan
Chapter 3 / Emergency Response Human Services Sub-plan
Chapter 4 / Evacuation and Reception Sub-plan
Chapter 5 / Volunteer Coordination Sub-plan
Chapter 6 / Donations Sub-plan
Chapter 7 / Traffic Management Sub-plan and Guidelines
Chapter 8 / Environmental Health Sub-plan
Chapter 9 / Moreton Island Sub-plan
Chapter 10 / Inundation Sub-plan
Chapter 11 / Wildfire Sub-plan
Chapter 12 / Pandemic Sub-plan
Chapter 13 / Tsunami Sub-plan
Chapter 14 / Isolated Communities Sub-plan

Standard Operating Procedures (SOPs), which support the above operational plans, are internal documents and can be found in TRIM container 109/555/14/674or via the Disaster Management Office.