Emergency Management Norfolk Island · disaster/emergency and was prepared by the Emergency Management Norfolk Island Committee pursuant to Section 8 ... AGD Attorney-General’s

TERRITORY OF NORFOLK ISLAND

DISASTER AND

EMERGENCY

PLAN

NO

RD

ISP

LAN

2011

Emergency Management Norfolk Island _________________________________

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DOCUMENT CONTROL

AUTHORISATON

This Plan provides for the mobilisation and co-ordination of the Territory’s resources to deal with an actual or potential disaster/emergency and was prepared by the Emergency Management Norfolk Island Committee pursuant to Section 8 of the Disaster & Emergency Management Act 2001.

This Plan was authorised by:

Signature: Sgd: T Sheridan

Minister: The Hon Tim Sheridan MLA Minister for Community Services

Date of authorisation: 21 October 2011

Date of effect: 28 October 2011 (Norfolk Island Government Gazette No. 47 )

VERSION CONTROL

AMENDMENT NO. AMENDMENT SUMMARY AUTHOR EFFECTIVE DATE

01/2004 Logistic Support & Training G. Downie 13 Feb 2004

01/2005 Review & Contact Details G. Downie 01 Mar 2005

01/2006 Review & Contact Details G. Downie 16 Feb 2006

01/2007 Review (partial) & Contact Details G. Downie 23 Mar 2007

01/2008 Review & Contact Details G. Downie 27 Mar 2008

01/2011 Review – complete revision EMNIC 28 OCT 2011

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PLAN DISTRIBUTION

COPY NO. RECIPIENT No. of Copies

1 Master Copy held in Records 1

2 Administrator 1

3 Minister, Norfolk Island Government 1

4 Chairperson EMNI 1

5 Chief Executive Officer Norfolk Island Administration 1

6 Controller EMNI 1

7 Deputy Controller EMNI 1

9 Emergency Operations Centre 1

10 Norfolk Island Government EMNIC Liaison Officer 1

11 Australian Government EMNIC Liaison Officer 1

8 Functional Service Coordinator (Airport & Ports) 1

12 Functional Service Coordinator (Border Protection) 1

13 Functional Service Coordinator (Fire Services) 1

14 Functional Service Coordinator (Health) 1

15 Functional Service Coordinator (Media & Public Information) 1

16 Functional Service Coordinator (Police) 1

17 Functional Service Coordinator (Telecommunications) 1

18 Functional Service Coordinator (Transport & Resources) 1

19 Functional Service Coordinator (Welfare) 1

20 Airport Manager 1

21 Headquarters, Joint Operations Centre (HQ-JOC) Australian Defence Force (ADF) 1 – ecopy only

22 Office in Charge Norfolk Island Police Force (NIPF) 1

23 President, Norfolk Island Volunteer Rescue Squad 1

24 Emergency Operations Centre 1

25 Emergency Services Coordinator 1

26 Crisis Coordination Centre, Attorney-General’s Department, Canberra 1 – ecopy only

27 Emergency Management Australia, Attorney-General’s Department, Canberra 1 – ecopy only

28 External Territories Policing Desk, International Deployment Group (IDG), Australian Federal Police

1 – ecopy only

29 Territories Division, Department of Regional Australia, Regional Development and Local Government

1 – ecopy only

30 Australian Marine Safety Authority 1 – ecopy only

31 New Zealand Rescue Coordination Centre 1 – ecopy only

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TABLE OF CONTENTS

LIST OF ABBREVIATIONS ............................................................................................................... v

ACKNOWLEDGEMENTS ................................................................................................................ 1

1. INTRODUCTION ................................................................................................................... 2

1.1 Aim .............................................................................................................................. 2

1.2 Objectives .................................................................................................................... 2

1.3 General Background .................................................................................................... 2

1.4 Norfolk Island .............................................................................................................. 3

1.5 Emergency Management Capabilities ........................................................................ 4

2. DISASTER AND EMERGENCY MANAGEMENT IN NORFOLK ISLAND ......................................... 5

2.1 Key Principles .............................................................................................................. 5

2.3 All Agencies Approach ................................................................................................. 5

2.4 All Risks Approach ....................................................................................................... 5

2.6 Risk Management ........................................................................................................ 6

2.6.1 Identified Risks on Norfolk Island ......................................................................... 6

2.6.2 Risk management standard .................................................................................. 7

3. EMERGENCY MANAGEMENT NORFOLK ISLAND (EMNI) ......................................................... 8

3.1 Emergency Management Organisation ...................................................................... 8

3.2 Emergency Management Norfolk Island Committee (EMNIC) ................................... 8

3.2.1 Functional structure ............................................................................................. 9

3.2.2 Frequency of Meetings ......................................................................................... 9

3.2.3 Operational functional relationships .................................................................... 9

3.2.4 Controller ............................................................................................................ 10

3.2.5 Deputy Controller ............................................................................................... 11

3.2.6 Chairperson......................................................................................................... 11

3.2.7 Functional Service Coordinators ......................................................................... 12

3.2.8 Functional Service Liaison Officers ..................................................................... 13

3.2.9 Field Coordinators .............................................................................................. 13

3.2.10 Authorised officers ............................................................................................. 13

3.2.11 Reporting Requirements .................................................................................... 13

3.2.12 Sub-Committees ................................................................................................. 14

3.2.13 Knowledge Handover ......................................................................................... 14

3.2.14 Key Contacts ....................................................................................................... 14

3.3 Roles And Responsibilities during an Emergency ..................................................... 14

3.3.1 The role of the Administrator ............................................................................. 14

3.3.2 The role of the Minister ...................................................................................... 15

3.3.3 Memoranda of Understanding ........................................................................... 16

3.3.4 Memoranda of Agreement ................................................................................. 16

4. THE DISASTER AND EMERGENCY PLAN (NORDISPLAN) ........................................................ 17

4.1 Aim ............................................................................................................................ 17

4.2 Objectives .................................................................................................................. 17

4.3 Structure of the NORDISPLAN ................................................................................... 17

4.4 Exercising the Plan .................................................................................................... 18

4.5 Training and Skills Development ............................................................................... 19

4.6 Relationships with other Plans .................................................................................. 20

4.7 Amendments and Review ......................................................................................... 20

4.8 Requests for External Assistance .............................................................................. 20

4.9 Expenditure ............................................................................................................... 21

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5. OPERATIONS ...................................................................................................................... 22

5.1 Declaring a “State of Disaster” or a “State of Emergency” ....................................... 22

5.1.1 Statutory powers ................................................................................................ 22

5.1.2 Criteria for recommending a declaration ........................................................... 23

5.1.3 Determining the Disaster or Emergency Area .................................................... 24

5.1.4 Announcement of a Declaration ........................................................................ 25

5.1.5 Requisitioning Property ...................................................................................... 25

5.2 Initiation of the NORDISPLAN ................................................................................... 26

5.2.1 Stand-by .............................................................................................................. 26

5.2.2 Activation ............................................................................................................ 27

5.2.3 Stand Down......................................................................................................... 27

5.3 Moving between Levels ............................................................................................ 28

5.4 Recovery .................................................................................................................... 28

5.5 Resources .................................................................................................................. 29

5.6 Expenditure and Requisitioning Property ................................................................. 29

5.7 Emergency Operations Centre (EOC) ........................................................................ 30

6. SUB PLANS ......................................................................................................................... 31

7. RESPONSE PLANS ............................................................................................................... 32

8. CRITICIAL INFRASTRUCTURE ............................................................................................... 33

9. PUBLIC AWARENESS........................................................................................................... 34

10. TELECOMMUNICATIONS .................................................................................................... 35

11. ANNEXURES ....................................................................................................................... 36

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LIST OF ABBREVIATIONS

ADF Australian Defence Force

AGD Attorney-General’s Department (Australian Government)

AFP Australian Federal Police

AMSA Australian Marine Safety Authority

AO Authorised Officer

AOCC Australian Federal Police Coordination Centre

ARFFS Aviation Rescue & Fire Fighting Service

ATA Accommodation and Tourism Association

ATSB Australian Safety Transport Bureau

AUSCONPLAN- SPRED Australian Contingency Plan for Space Re-Entry Debris

BOM Bureau of Meteorology (Australian Government)

CASA Civil Aviation Safety Authority

CAVDISPLAN Australian Government Aviation Disaster Plan

COLREGS Convention on the International Regulations for Preventing Collisions at sea

COMDISPLAN Australian Government Disaster Response Plan

CCC Crisis Coordination Centre (Attorney-General’s Department)

CEO Chief Executive Officer, Norfolk Island Administration

CFCO Chief Fire Control Officer

CTLR Controller

DEC Deputy Emergency Controller

DERF Disaster and Emergency Relief Fund

DIAC Department of Immigration & Citizenship (Commonwealth)

DRA Department of Regional Australia, Regional Development & Local Government

DVI Disaster Victim Identification

EMA Emergency Management Australia

EMA-LO Emergency Management Australia Liaison Officer

EMG Emergency Management Group (Norfolk Island)

EMNI Emergency Management Norfolk Island

EMNIC Emergency Management Norfolk Island Committee

EOC Emergency Operations Centre

ESC Emergency Services Centre

FSA Functional Service Area

FSC Functional Service Coordinator

FSCC Functional Service Coordination Centre

FSLO Functional Service Liaison Officer

MOA Memorandum of Agreement

MOU Memorandum of Understanding

NIA Norfolk Island Administration

NIG Norfolk Island Government

NICIS Norfolk Island Customs & Immigration Service

NIVRS Norfolk Island Volunteer Rescue Squad

NIFS Norfolk Island Fire Service

NIPF Norfolk Island Police Force

NORDISPLAN Norfolk Island Territory Disaster and Emergency Plan

NRIS National Registration and Inquiry System

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OIC-NIPF Officer-in-Charge, Norfolk Island Police Force

PA-NI Parks Australia Norfolk Island

SOP Standard Operating Procedure

SP Sub Plan

RP Response Plan

VRA-NSW Volunteer Rescue Association of NSW

WAC Welfare Assembly Areas

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ACKNOWLEDGEMENTS

We wish to record our sincere appreciation for the work of all those involved in the development of this new edition of the Norfolk Island Disaster and Emergency Plan and the accompanying Sub Plans and Response Plans.

To all our colleagues, past and present, on the Emergency Management Norfolk Island Committee, to the Functional Service Coordinators and to the many other emergency services personnel who contributed go both our thanks and those of the local community in whose interest this Plan has been revised and updated.

In particular, we would like to acknowledge the expert advice, assistance and support provided to EMNI by Emergency Management Australia and its officers, Mr Peter Willett and Ms Robin Death, who contributed so willingly to this significant update of our Plan.

The entire community of Norfolk Island is all the safer for the diligence and skills of all those involved in the development of this Plan.

Sgd: A Butterfield Adon Butterfield Chairperso

Sgd: M Bradley Milton Bradley Controller

Date: 12 October 2011 Date: 12 October 2011

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1. INTRODUCTION

1.1 AIM

The aim of the Norfolk Island Disaster & Emergency Plan (NORDISPLAN) is to detail the emergency prevention, preparedness, response and recovery arrangements for the Territory of Norfolk Island.

The NORDISPLAN provides for the mobilisation and co-ordination of the Territory's resources, both public and private, to deal with an actual or potential disaster or emergency and was prepared by the Emergency Management of Norfolk Island Committee (EMNIC) under the authority of the Disaster & Emergency Management Act 2001 (NI) *“the Act”+.

The NORDISPLAN is authorised for operation by the responsible Minister on the recommendation of the EMNIC.

1.2 OBJECTIVES

The aim will be achieved by:

i. Specifying the roles and responsibilities of key appointments and agencies on the island involved in emergency management

ii. Defining and providing information on key concepts, steps and processes required for emergency preparedness, response and recovery operations

iii. Identifying and facilitating emergency management training standards and requirements

iv. Providing the framework for exercises to test Norfolk Island emergency management arrangements

v. Identifying and maintaining information about resources and equipment available for emergencies and where required addressing resource and equipment gaps

vi. Providing for Sub Plans to address specific functional service areas, and

vii. Providing for Response Plans for identified risks to public safety.

1.3 GENERAL BACKGROUND

Norfolk Island is a self-governing Australian Territory. The Norfolk Island Act 1979 (Cth), establishes the general governance arrangements for the Territory, including providing for:

An Administrator of the Territory, appointed by the Governor-General, as the head of state;

The Legislative Assembly including the office of Speaker;

The Executive, comprising a Chief Minister, as the head of government, and responsible Ministers;

The Administration of the Territory, as the public service.

The Norfolk Island Legislative Assembly has full power to pass laws for the peace, order and good governance of the Territory in all matters except for four specific areas (the acquisition of property otherwise than on just terms; the raising of any military force; the coining of money; or permitting euthanasia). Civil defence and emergency services are matters upon which the Legislative Assembly has plenary power to make laws.

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1.4 NORFOLK ISLAND

The Territory of Norfolk Island is defined as 1:

“Norfolk Island and all the other islands and rocks lying within the area bounded by the parallels 28 degrees 59 minutes and 29 degrees 9 minutes south latitude and the meridians 167 degrees 54 minutes and 168 degrees east longitude.”

Figure 1 Map of Norfolk Island Territory

Norfolk Island is a volcanic outcrop approximately 5 x 8 kilometres with an area of 34.5 sq km. It lies in the South Pacific along the Norfolk Ridge, which extends from New Zealand to New Caledonia. It has no large-scale internal bodies of water and 32km of coastline. The island’s highest point is Mount Bates, 319m above sea level, located in the northwest quadrant of the island. The majority of the terrain is rolling hills suitable for farming and other agricultural uses. The coastline consists of varying degrees of cliffs faces.

The Territory also includes the uninhabited islands of Phillip and Nepean (respectively 7km and 1km south of the main island).

The climate is subtropical and with mild temperatures of little seasonal variation.

Norfolk Island has a population of approximately 1,800 residents with up to an additional 400 tourists at any one time. The population consists of Islanders such as Pitcairn/Bounty descendants and mainlanders (originally from Australia, New Zealand and Britain). Norfolk Islanders speak Norf’k, a mix of Tahitian and 18th century English.

Norfolk Island is located:

approximately 1,500km east of Brisbane

approximately 1,100km north west of Auckland, New Zealand, and

approximately 800km south south east of Noumea, New Caledonia.

1 Norfolk Island Act 1979 (Cth), ss. 4(1) and Schedule 1

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Figure 2 Regional location of Norfolk Island

1.5 EMERGENCY MANAGEMENT CAPABILITIES

This NORDISPLAN recognises that while the Norfolk Island Government and community have both capacity and capabilities to effectively manage and respond to many of the routine hazards and risks they face, those skills and resources are finite. In the event of a significant event, either in terms of scale or duration, additional external resources are likely to be required to preserve life and property. An understanding of those limits and the timely consideration of the need for additional assistance is therefore central to effective emergency management outcomes in the Territory.

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2. DISASTER AND EMERGENCY MANAGEMENT IN NORFOLK ISLAND

2.1 KEY PRINCIPLES

Emergency management on Norfolk Island is based on a principle of community participation and representation on the EMNIC. The emergency risk management process is used as the basis for emergency planning by the Committee in preparation of its plans. This methodical approach to the planning process provides a consistent framework for the government and community when addressing emergency management issues.

Nothing in this NORDISPLAN derogates from the responsibilities of individual agencies to fulfil their own emergency management obligations for specific events.

The emergency management structure utilises government and non-government organisations to prevent, prepare for, respond to and recover from the effects of an emergency. It depends on a comprehensive approach which encompasses:

All Hazards All Agencies All Risks, and All Resources

2.2 ALL HAZARDS APPROACH

The NORDISPLAN adopts an ‘All Hazards Approach’. It provides for the mobilisation of the Territory’s resources available for the prevention of, preparedness for, response to and recovery from the effects of emergencies.

The “all hazards approach” concerns arrangements for managing the large range of possible effects of risks and emergencies. This concept is useful to the extent that a large range of risks can cause similar problems and such measures as warning, evacuation; medical services and community recovery may all be required during and following emergencies.

Many hazards will, however, require specific response and recovery measures and will almost certainly require specific prevention and mitigation measures. These are contained in the specific Response Plans attached to this NORDISPLAN.

2.3 ALL AGENCIES APPROACH

All agencies and organisations are involved to some extent in emergency management. The context of emergency management for specific agencies varies and may include:

ensuring the continuity of their business or service

protecting their own interests and personnel

protecting the community and environment from risks arising from the activities of the organisation

protecting the community and environment from identified risks.

2.4 ALL RISKS APPROACH

EMNI adopts a risk management approach to disaster and emergency management. “Risk management” is defined as:

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“The identification, assessment, and prioritization of risks followed by coordinated and economical application of resources to minimize, monitor, and control the probability and/or impact of unfortunate events.”

Details of that approach are included both within the NORDISPLAN and its Annexures.

2.5 ALL RESOURCES APPROACH

The threat to the Norfolk Island community of disasters or emergencies requires the ability to mobilise all available resources to preserve life and property and to plan for, respond to and recover from those disasters. Planning for such risks also recognises the geographic isolation of the Territory and that, even with all resources available; in major events local capabilities are likely to be insufficient to meet the total response or recovery need.

The “All resources” approach means that resources are available commensurate with both risk and need from:

i) the Norfolk Island Government ii) the Norfolk Island community, including private and business resources, and iii) the Australian Government.

2.6 RISK MANAGEMENT

With the assistance of EMA the EMNIC has undertaken an initial risk assessment (May, 2011) to identify and measure the known risks on Norfolk Island. The assessment was prepared in accordance with the approved risk management framework by taking into consideration the type of risk, the likelihood of the risk and the potential consequence of the risk to produce a risk identification rating of High, Significant, Moderate or Low Risk.

It should be recognised that the assessment provides generic risk identification only.

The EMNIC has identified a range of potential hazards to or on Norfolk Island.

2.6.1 Identified Risks on Norfolk Island

The following threats/risks have been identified by the EMNIC as “high” and requiring active management through Response Plans.

Threat/Incident Risk (Rating)

Commercial airliner crash High (60)

Cat 3+ cyclone passing near to the island resulting in casualties, infrastructure and building damage

High (56)

Structural fire (commercial building/s – more than 10 people) High (56)

Small aircraft (6 person) ditching into the ocean near the island High (56)

Explosion High (45)

Epidemic – contagious disease (Human to Human) High (45)

Terrorist Incident High (45)

Marine Search and Rescue High (40)

The full list of risks and their current ratings are included at Annexure 1.

http://en.wikipedia.org/wiki/Risk

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Other risks will be addressed as and when they are identified. A complete risk assessment will be conducted as part of the annual review of the NORDISPLAN.

2.6.2 Risk management standard

Risk Assessments form part of the ongoing development of emergency management arrangements.

These are prepared in accordance with the approved risk management practices, utilising AS/NZS ISO 31000:2009 taking into consideration the type of threat or incident, the likelihood and the potential consequence to produce a risk matrix and ratings.

The risk assessment methodology used to calculate the risk is at Annexure 2.

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3. EMERGENCY MANAGEMENT NORFOLK ISLAND (EMNI)

3.1 EMERGENCY MANAGEMENT ORGANISATION

The functional organisational structure of EMNI is centred on the positions of Controller and the Chairperson of the Emergency Management Norfolk Island Committee (EMNIC).

The key positions are:

i. Controller ii. Deputy Controller

iii. Chairperson iv. Deputy Chairperson v. Officer in Charge, Norfolk Island Police Force

vi. Chief Fire Control Officer vii. Functional Service Coordinators

viii. Functional Service Liaison Officers ix. Field Coordinators, and x. Authorised Officers

The full Organisation Chart is at Annexure 3.

3.2 EMERGENCY MANAGEMENT NORFOLK ISLAND COMMITTEE (EMNIC)

The Act establishes the Emergency Management of Norfolk Island Committee (EMNIC). The functions of the Committee are to:

1. prepare a Disaster and Emergency Plan for the Territory of Norfolk Island with provision for response to and recovery from disasters and major emergencies (this NORDISPLAN)

2. advise the responsible Minister on matters affecting the Plan and on methods of combating disasters and major emergencies, and of recovery following disasters and major emergencies

3. advise the responsible Minister on the making of any declaration of disaster or emergency

4. keep the Disaster and Emergency Plan under review and make such amendments to it as from time to time appear necessary or expedient

5. maintain contact with organisations, groups, or persons, that might usefully participate in response or recovery operations and keep them informed of what would be expected of them in the event of a disaster or major emergency

6. monitor the standard operating procedures of any body or organisation that performs any function under the Disaster and Emergency Plan or might participate in response or recovery operations, and

7. monitor and evaluate the implementation of the Disaster and Emergency Plan and the response and recovery operations taken during or following any event under this NORDISPLAN.

The Act also provides that EMNIC may for the purposes of its functions:

1. consult, liaise with, and make reciprocal arrangements with, other bodies or organisations involved in or concerned with the provision of response or recovery operations, or emergency services

2. create such offices as it thinks fit and appoint persons to those offices

3. assign such functions, duties, and responsibilities to the members of the committee or any person appointed to any office created by the committee as are considered necessary or expedient, and

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4. appoint a person or class of persons to be authorised officers for the purpose of the Disaster and Emergency Management Plan and to fulfil such functions or powers, subject to this Act, as are nominated or described under the Plan.

EMNIC is comprised of the following statutory members2:

i. the Controller

ii. the Deputy Controller

iii. the Officer in Charge of the Norfolk Island Police

iv. the Chief Fire Control Officer, and

v. one other person appointed by the Minister.

EMNIC has also appointed the following liaison staff:

vi. the Chief of Staff, Norfolk Island Government (Norfolk Island Government liaison) vii. the Official Secretary, Office of the Administrator (Australian Government liaison)

EMNIC is provided with secretarial support by the Chief Executive Officer (CEO) in accordance with s.6 (8) of the Act.

The current appointments to EMNIC are at Annexure 4. All members of EMNIC are deemed to be Authorised Officers for the purposes of the Act.

3.2.1 Functional structure

The functions of EMNI are structured around two levels of responsibility and contribution:

Emergency Management Norfolk Island Committee (EMNIC) – this is the high level strategic direction setting/authorising body.

The EMNIC is responsible for the strategic management of the organisation, except during the times of emergency or disaster when it assumes operational control of response and recovery efforts.

and,

Emergency Management Group (EMG) – this is the tactical group comprising Functional Service Coordinators (FSC), and chaired by an EMNIC member.

The Emergency Management Group (EMG) is comprised of selected members of the EMNIC, all FSCs and representatives of a range of stakeholder agencies/organisations.

3.2.2 Frequency of Meetings

The EMNIC must meet no less than six times per year (excluding operations). The EMNIC may require the attendance of additional personnel from time to time as requested by the Chairperson or one or more of its members.

The EMG is to meet at least three times per year (excluding operations), including at least once per year with the EMNIC.

3.2.3 Operational functional relationships

The functional relationships of the key operational elements under the NORDISPLAN are illustrated in the following figure:

2 Disaster and Emergency Management Act 2000, s.6

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Figure 3 Operations functional relations

3.2.4 Controller

The Controller is appointed by the Minister and is responsible for:

i. Achieving the operational aims and objectives of the NORDISPLAN

ii. Undertaking risk management activities, including the identification of new or emerging risks, hazards or vulnerabilities

iii. Maintaining awareness of emergency management issues and providing advice and information between the Territory and relevant mainland authorities

iv. Approving Response Plans (RPs) for identified hazards and risks

v. The operational management of the Emergency Operations Centre (EOC), including tasking staff during operations

vi. Providing timely advice to the Chairperson, the EMNIC and the EMG, as required, on emergency related matters, both during emergency situations and during normal operating periods

vii. Recommending to the Minister that a “State of Disaster” or “State of Emergency” should be declared

viii. Managing the coordination of resources to meet the operational needs of either actual disasters, emergencies or imminent events

ix. Undertaking operational planning to address identified issues and risks

x. Ensuring Situation Reports and other operational reporting and recording requirements are undertaken and maintained

Controller

Deputy Controller

Functional Service

Coordinators

Functional Service

Liaison Officers

Field Coordinators

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xi. As far as practicable, ensuring that measures are in place so that members of the community have access to information and advice so they are prepared and able to take appropriate actions for their safety, and

xii. If appropriate, recommending to the Chairperson that under the provisions of COMDISPLAN, a request for Australian Government Assistance be made to EMA.

In times of actual disasters or emergencies the Controller may delegate to other personnel specified functions this NORDISPLAN.

3.2.5 Deputy Controller

The Deputy Controller is appointed by the Minister and is responsible for:

i. Providing assistance and support to the Controller in the discharge of his/her functions under the Act and the NORDISPLAN, and

ii. Acting as the Controller when the Controller is absent or unable to discharge his/her duties due to absence or incapacity

3.2.6 Chairperson

The Chairperson of the EMNIC is appointed by the Minister and is responsible for:

i. The administrative oversight and development of the NORDISPLAN and overall management of the EMNIC

ii. Chairing meetings of the EMNIC and arranging for the recording and circulation of the minutes

iii. Approving, on the advice of EMNIC, all Functional Service Area Sub Plans

iv. The general management of the Emergency Operations Centre (EOC), including staffing and administrative arrangements, and ensuring that the EOC remains in a constant state of readiness and can be activated at short notice

v. Ensuring the Administrator, responsible Minister and other officials remain informed on both strategic and operational issues impacting on EMNI and the Territory as a whole, including any new vulnerabilities or risks which could affect Norfolk Island

vi. Management of the NIG budget allocation to EMNI, including providing advice to the responsible Minister of the resources required to achieve the objectives of the NORDISPLAN

vii. Requesting Australian Government Assistance under the Commonwealth Disaster Assistance Plan (COMDISPLAN)

viii. Advising on public information and warnings during actual or imminent threats or emergencies

ix. General community and media liaison in relation to emergency management issues

x. attending the EMNIC and EMG meetings and arranging for the recording and circulation of the minutes to the EMNIC and EMG, and

xi. Providing the primary point of contact between the EMNIC and the Norfolk Island Government.

On the recommendation of the EMNIC, the Minister may appoint a Deputy Chairperson.

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In times of actual disasters or emergencies the Chairperson may delegate to other personnel specified functions this NORDISPLAN.

3.2.7 Functional Service Coordinators

A Functional Service Coordinator (FSC) is appointed by the EMNIC, for each Functional Service Area (FSA). FSC’s are responsible for the planning, command, control and communications of specific emergency response and recovery operations.

The full list of Functional Service Coordinators is as follows:

Airport & Ports

Border Protection

Fire

Health

Media & Public Information

Police

Telecommunications Infrastructure

Transport & Resources, and

Welfare

The current list of appointments as FSC is at Annexure 5.

Specifically, FSC’s are responsible for:

i. Coordinating the activities by participating organisations allocated to that FSA

ii. Developing, maintaining and reviewing their FSA Sub Plan, their elements of relevant Response Plans and updating contact lists in their FSA

iii. Developing, maintaining and reviewing their standard operating procedures, detailing the specific functions, resources and all relevant information pertaining to that FSA

iv. Providing advice and information to the Controller and EMNIC during times of emergencies and as required at any other time

v. Establishing and maintaining such Functional Service Coordinator Centres (FSCCs) as may be required during times of NORDISPLAN activation

vi. Conducting ongoing training, skills development and exercise activities to maintain operational readiness and preparedness of their FSA

vii. Undertaking appropriate response and recovery activities as detailed in SPs and RPs, in line with any level of activation of the NORDISPLAN, including providing any required reports and debriefs

viii. Attending EMG meetings and other meetings at the direction of the EMNIC

ix. Recommending to the EMNIC appointments of Functional Service Liaison Officers (FSLOs), Field Coordinators (FCs) and Authorised Officers (AOs), and

x. Undertaking any tasks and activities as directed by the EMNIC.

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3.2.8 Functional Service Liaison Officers

Functional Service Liaison Officers (FSLOs) are responsible to their FSC and are the individuals appointed by the EMNIC on the recommendation of the FSC as the primary contact point for each FSA and affiliated participating organisation.

FSLOs are responsible for:

i. Maintaining contact with their FSC during any activation of the NORDISPLAN ii. Advising all personnel in their FSA of the activation status of the NORDISPLAN

iii. Assisting in the maintenance and implementation of their FSA Sub Plan and relevant Response Plans, and

iv. Participating in debriefing activities following a disaster or emergency.

3.2.9 Field Coordinators

Field Coordinators (FCs) are appointed by EMNIC on the recommendation of the FSC and are responsible for providing operational support to their FSC. They manage and respond at the tactical engagement level to the immediate demands of the situation and provide a command and control link to the FSC.

3.2.10 Authorised officers

Authorised Officers are those personnel formally appointed under the Act to exercise statutory powers in a disaster or emergency.

In addition to Norfolk Island Police officers, the following may be appointed as Authorised Officers:

i. All Functional Service Coordinators (FSCs), and

ii. Field Coordinators (FCs) and other personnel on the advice from the Functional Service Coordinators (FSCs) through the Controller.

Current appointments as Authorised Officer are detailed at Annexure 6.

All Authorised Officers are required by the Act to be issued with photographic identification cards by EMNIC and produce such identification if required [s.8 (3) & (4)].

3.2.11 Reporting Requirements

The Chairperson or his/her Deputy is required to attend the EMNIC meetings and to arrange for the recording and circulation of the minutes to the EMNIC.

The Chairperson or his/her Deputy or delegate is also required to attend the EMG meetings and to arrange for the recording and circulation of the minutes to the EMG members and EMNIC.

The Chairperson will provide an annual report to the responsible Minister no later than the 30 September each year covering the period 1 July to 30 June in the immediately prior financial year.

EMNIC is to promptly inform the responsible Minister of any new hazards, risks or vulnerabilities which could affect Norfolk Island.

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3.2.12 Sub-Committees

For the purpose of a specific project or issue, sub-committees can be created at the discretion of the Chairperson of EMNIC. Sub-committee members are not limited to members of the EMNIC and any sub-committee must be chaired by an EMNIC member.

Terms of Reference are to be established for each sub-committee and approved by the EMNIC. Minutes of meetings are to be taken and provided to the Chairperson and tabled at the EMNIC.

3.2.13 Knowledge Handover

With a view to ensuring the handover of knowledge to newly appointed emergency personnel, the EMNIC will ensure that representatives of agencies who are members of the EMNIC and newly appointed FSCs, FSLOs and others in command of lead agencies are provided with a briefing to ensure their understanding of this NORDISPLAN and their roles and responsibilities under the established emergency procedures in Norfolk Island.

Where necessary, the EMNIC will facilitate training programs for such personnel. No action by the EMNIC under this clause is intended to derogate from the ongoing responsibility of agencies to ensure appropriate knowledge, skills and experience is held or provided for officers appointed in such organisations.

3.2.14 Key Contacts

Ready access to up-to-date contact information for all parts of EMNI is a key resource in emergency management. All members of the EMNIC, EMG and the participating organisations are required to ensure that their contacts list are kept under active review and updated on each occasion there is a change.

The current EMNI Contacts List is at Annexure 7.

3.3 ROLES AND RESPONSIBILITIES DURING AN EMERGENCY

The roles and responsibilities of government departments, agencies and sections, non-government organisations (including volunteer organisations) are detailed at Annexure 8. These entities, including non-government, volunteer and corporate organisations have acknowledged by Memorandum of Agreement that:

i. they are willing to participate in and support emergency response or recovery operations under the direction of the Controller

ii. the level of support to be provided is that which may be appropriate to the particular emergency operation, and

iii. it is the responsibility of these identified entities to maintain their relevant details.

3.3.1 The role of the Administrator

The Administrator is the Territory’s ‘Head of State’ and is formally responsible under the Norfolk Island Act 1979 (Cth) for the administration of Norfolk Island. The Administrator is also the senior Australian Government representative in the Territory. Both roles confer on the Administrator the right to be consulted and to comment on major government policy initiatives and proposals, particularly where Australian Government assistance may be required. This includes critical statutory instruments such as the NORDISPLAN.

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As an integral part of the Territory’s broader governance arrangements, and given his or her standing, the Administrator is responsible for:

iv. providing high level access to the Australian Government v. lending authority and adding impetus in requests for external assistance vi. focusing broader community attention - particularly in the recovery phase, and vii. making or endorsing all Norfolk Island related requests for Australian Defence

Force assistance to the civil community in line with current protocols.

The Administrator has no operational role in the management of disasters or emergencies and cannot direct the Controller or EMNIC in the discharge of their statutory responsibilities under the Act or this NORDISPLAN.

3.3.2 The role of the Minister

Under the Norfolk Island Act 1979 (Cth), the Chief Minister is appointed by the Legislative Assembly and, in turn, he or she appoints a Minister to have policy responsibility for administering the Act. The Minister therefore approves the NORDISPLAN and variations to it. The Minister has full rights to be informed and advised by the Controller, EMNIC and generally to take whatever advice he/she deems appropriate in relation to emergency management.

NORDISPLAN is a “disallowable instrument” under the Act *ss.8 (7)] and must, therefore, be tabled in the Legislative Assembly at the next sitting after it is approved.

The responsible Minister can only lawfully declare that a “State of Disaster” or “State of Emergency” exists on the advice of the EMNIC. If that Minister is unavailable, under the Act any Minister of the Norfolk Island Government may make the declaration (s.3)

The Minister should be advised at the first available opportunity of any significant event under this NORDISPLAN, including its activation at any level. Communication with the Minister is via the Chairperson, utilising the assistance of the Chief of Staff as the Norfolk Island Government Liaison Officer, as required.

The role of the Minister under the Act includes:

i. Appointing the presiding member (Chairperson), the deputy presiding member and deputies of members of EMNIC

ii. Authorising the provision of secretarial or administrative support to EMNIC iii. Declaring a “State of Disaster” or “State of Emergency” iv. Convening an emergency meeting of the Legislative Assembly for the purpose of

extending or renewing a declaration v. Revoking, after taking advice of the Controller, any declaration; vi. Authorising expenditure from the Revenue Fund , without further appropriation,

for the relief of disaster victims and response and recovery operations vii. Payment of any moneys received into the DERF.

While the Minister has a right to be advised and consulted, he/she has no operational role under the NORDISPLAN and cannot direct the Controller or EMNIC in the discharge of their statutory responsibilities under the Act or this NORDISPLAN. The Minister cannot be a member of EMNIC.

In a major emergency, the most effective means of communicating the seriousness of the circumstances may be the direct involvement of the Minister in the public communications

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strategy. In the relevant circumstances, that option should be discussed as part of the Ministerial briefing process.

3.3.3 Memoranda of Understanding

In exercising its functions, EMNIC may enter into formal agreements with government agencies outside of the NIG. These arrangements are documented in a Memorandum of Understanding (MOU).

MOUs have the following common structure:

MOU No. /20

MOU Title

Parties:

Term:

Details:

Date:

Party Signatures:

Witness Signatures:

EMNIC Authorisation:

Authorisation Date:

Next Review Date:

A full list of current MOUs is at Annexure 9.

3.3.4 Memoranda of Agreement

EMNIC may also enter into arrangements with other NIG agencies and/or private organisations or corporations. These arrangements are documented in a Memorandum of Understanding (MOA).

MOAs have the following common structure:

MOA No. /20

MOA Title

Parties:

Term:

Details:

Date:

Party Signatures:

Witness Signatures:

EMNIC Authorisation:

Authorisation Date:

Next Review Date:

A full list of current MOAs is at Annexure 10.

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4. THE DISASTER AND EMERGENCY PLAN (NORDISPLAN)

4.1 AIM

The aim of the NORDISPLAN is to detail the emergency prevention, preparedness, response and recovery arrangements for the Territory of Norfolk Island.

4.2 OBJECTIVES

The aim will be achieved by:

i. Specifying the roles and responsibilities of key appointments and agencies on the island involved in emergency management

ii. Detailing specific emergency management training requirements

iii. Defining and providing information on key concepts, steps and processes required for emergency preparedness, response and recovery operations

iv. Providing the framework for exercises to test Norfolk Island emergency management arrangements

v. Identifying and maintaining information about resources and equipment available for emergencies and where required addressing resource and equipment gaps

vi. Providing for Sub Plans to address specific functional service areas, and

vii. Providing for Response Plans for identified risks to public safety.

4.3 STRUCTURE OF THE NORDISPLAN

This Disaster and Emergency Plan adopts the following format:

Section Description Comment

Disaster and Emergency Plan Contains the core information, directives and policies that govern the management of disasters and emergencies.

This section is authorised by the Minister under the Act and may only be varied by the statutory approval process.

Annexures Contain general information on available resources, personnel contact details and external assistance protocols.

Include templates for documenting key activities, such as Declarations of a Disaster/Emergency, Requests for Commonwealth Assistance etc.

This section is authorised by the Chairperson, EMNIC and may be varied by him/her at any time.

Sub Plans sit outside the NORDISPLAN proper and provide guidance for EMNIC and FSCs:


Sub Plans Contain detailed standard operating procedures and instructions that govern the operation of the Functional Service Areas or other critical tasks.

This section is authorised by the Chairperson, EMNIC and may be varied by him/her at any time

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Response Plans also sit outside the NORDISPLAN proper and provide guidance for the entire emergency organisation and are a critical coordinating resource. They allow each part of the organisation to have an informed understanding of what others are responsible for during an emergency:


Response Plans Contain specific background, policies, standard operating procedures and other instructions relating to specific disaster risks

This section is authorised by the Controller and may be varied in consultation with/on the recommendation of EMNIC

The full relationship between the NORDISPLAN, Sub Plans (SPs) for each FSA and Response Plans (RPs) for each identified is contained in Annexure 11. As a sample only, the planning logic is illustrated as:

SUB PLANS

FSA “A” Sub Plan FSA “B” Sub Plan FSA “C” Sub Plan FSA “X” Sub Plan

RES

PO

NSE

PLA

NS

Response Plan 01 [Event 1]

Contains FSA “A” response to Event 1

Contains FSA “B” response to Event 1

Contains FSA “C” response to Event 1

Contains FSA “X” response to Event 1
















Figure 4 NORDISPLAN Planning Logic

4.4 EXERCISING THE PLAN

It is the responsibility of the Chairperson of the EMNIC to ensure that the Controller arranges for the NORDISPLAN to be exercised in alternate years by live and table-top exercises.

All exercises will be conducted in accordance with established and recognised “Exercise Management” principles and protocols, included in the general Exercise Management Model:

NORDISPLAN

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Figure 5 Exercise Management Model

On the invitation from the Chairperson, the CEO will assist with the preparation, conduct or assessment of exercises.

4.5 TRAINING AND SKILLS DEVELOPMENT

The EMNI's capability to respond effectively to disaster is to be regularly tested by exercises conducted by individual Functional Services Areas and by the organisation as a whole. Emergency Management exercises or practices shall be approved by the Minister, on the advice of the EMNIC. The Minister is to be advised by the Chairperson of all exercises prior to them being conducted. For the purpose of training continuity, this includes approval to participate in any exercise or practice of Norfolk Island Airport emergency procedures.

The conduct of well-prepared and coordinated exercises will, in addition to testing SPs, RPs and SOPs, lead to a better mutual understanding and cooperation between the various components of the EMNI organisation. Procedures to coordinate the planning of exercise that are specifically designed to enhance disaster preparedness should be prepared by FSCs.

In addition, FSCs whose departmental role is not normally associated with emergency incidents are responsible for conducting specialist training for individuals and to exercise the service's disaster and emergency management system.

NIG employees will not be prevented from fully participating in approved exercises or practices provided the employee/s are registered member/s of an Emergency Agency, are an office holder or member of an FSA and are required for the particular exercise scenario. This includes any exercise or practice of Norfolk Island Airport emergency procedures; unless the responsible Minister has granted prior approval in writing that an employee or group of employees is or are not to participate.

In considering whether to agree that an employee or group of employees of the Administration of Norfolk Island not participate in an approved EMNI exercise or practice, including any exercise or practice of Norfolk Island Airport emergency procedures, the responsible Minister shall take account of the role of that employee or group of employees

Exercise Management

Model

IDENTIFY the NEED

ANALYSE the NEED

DESIGN the

EXERCISE

CONDUCT the

EXERCISE

DEBRIEF the

EXERCISE

EVALUATE the

EXERCISE

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in disaster and emergency management, on the advice of the EMNIC and in consultation with the CEO.

These procedures shall take precedence over any other written or verbal instruction or directive to an employee or group of employees of the Administration of Norfolk Island issued by any other Minister, the CEO, or any other person acting in any capacity whatsoever, for the purpose of the exercise or practise, other than a member of the Norfolk Island Police.

4.6 RELATIONSHIPS WITH OTHER PLANS

This NORDISPLAN has functional relationships with the following other Plans:

Norfolk Island Government

Airport Emergency Plan – required by Australian law and regulated by CASA.

Australian Government

Title Acronym Issuing Authority

Disaster Response Plan COMDISPLAN EMA

Aviation Disaster Response Plan CAVDISPLAN EMA

Reception Plan COMRECEPLAN EMA

National Marine Chemical Spill Contingency Plan ChemPlan AMSA

National Marine Oil Spill Contingency Plan - AMSA

International

New Zealand Search & Rescue Plan

4.7 AMENDMENTS AND REVIEW

The NORDISPLAN requires annual review by 30 June each year.

The review cycle is included in a complete events calendar contained in Annexure 12.

In addition, a review will be conducted following any activation.

The Annexures are subject to constant revision and may be reissued by the Chairperson on each occasion of change and are excluded from the NORDISPLAN revision status.

4.8 REQUESTS FOR EXTERNAL ASSISTANCE

4.8.1 Activation of the COMDISPLAN

During an emergency situation where, in the opinion of the Controller, local resources are or are likely to be inadequate or overwhelmed the Chairperson, on the recommendation of the EMNIC, may request Australian Government physical assistance under the auspices of the Commonwealth Disaster Response Plan (COMDISPLAN). The Chairperson is authorised to liaise directly with Emergency Management Australia (EMA) to facilitate the provision of assistance under the COMDISPLAN. Both the Administrator and the responsible Minister must be advised of the request for assistance.

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EMA will consider requests and coordinate Australian Government assistance. The costs associated with activating the COMDISPLAN are a Commonwealth responsibility.

When a request for assistance is received from the Chairperson, EMA will coordinate the provision of assistance which may be provided by a Commonwealth agency, the Norfolk Island Government, a commercial provider or a combination of these.

Requests for physical assistance from the Australian Government may be telephoned to EMA in the first instance, but must be confirmed by a formatted hard copy via facsimile. The format for requests is attached at Annexure 13.

4.8.2 Deployment of EMA-LO

The EMNIC may also request further EMA assistance in the form of an EMA Liaison Officer (EMA-LO) who can be deployed and embedded with the EMC in advance of the emergency. The provision of assistance (including training, advice and close support during emergency events) is the subject of an MOU between EMA and EMNI. Its status is detailed at Annexure 14.

4.8.3 Emergency defence aero-medical evacuations

Further information on non-disaster ADF emergency aero-medical evacuations can be found in the Health Sub Plan.

4.9 EXPENDITURE

4.9.1 Operational Costs

All claims for costs must be presented to the EMNIC for approval. Reimbursement will only be approved for actions sanctioned by the EMNIC. Claims for Payment are to be presented to the EMNIC on the approved ‘Claim for Payment’ template at Annexure 15 and include relevant invoices. Any questions regarding expenditure or funding, or actual expenses incurred during activation of the NORDISPLAN are to be discussed, recorded and reported to the EMNIC through the Controller.

4.9.2 Disaster and Emergency Relief Fund (DERF)

A Disaster and Emergency Relief Fund (DERF) has been established under the Act. This fund is managed by the Disaster Relief Fund Committee which is also established under the Act. Funds will be managed in accordance with requirements stipulated under s.17 of the Act and may only be used for providing relief to victims of the disaster or emergency. Detailed information on the operation of the DERF is contained in the relevant Sub Plan.

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5. OPERATIONS

5.1 DECLARING A “STATE OF DISASTER” OR A “STATE OF EMERGENCY”

The Act provides for declarations by the Minister of a “State of Disaster” or “State of Emergency”.

The declaration of a “State of Disaster” or “State of Emergency” is a very significant step in the emergency management process. It invokes the extraordinary statutory powers of the Minister, the Controller and the Authorised Officers to take the measures necessary to preserve life and property. A declaration can only be made by the responsible Minister on the advice of the Controller.

Those key terms are defined as:

State of Disaster

“Disaster” means any occurrence (including flood, fire, storm, tempest, earthquake, eruption, epidemic of human, animal, or plant disease, hostilities directed by an enemy against Australia, and accident) that —

(a) causes, or threatens to cause, loss of life or injury to persons or animals or damage to property; and

(b) is of such a nature or magnitude that extraordinary measures are required in order to protect human or animal life or property;”

State of Emergency

“Emergency” means any occurrence (including fire, flood, storm, tempest, earthquake, eruption, epidemic of human, animal or plant disease, hostilities directed by an enemy against Australia, and accident) –

(a) that causes, or threatens to cause, loss of life or injury to persons or animals, or damage to property; and

(b) whilst not constituting a disaster should, in the opinion of the Minister be dealt with under this Act because of the diverse resources required in response to the emergency, the likelihood of the emergency escalating into a disaster, or for any other reason;”

During a declared State of Disaster or Emergency, the Act gives Authorised Officers extraordinary powers aimed at the protection of life and property and a restoration of conditions to normal. These powers extend to both public and private property and to individuals and corporations.

5.1.1 Statutory powers

The Act provides:

Declaration of Disaster or Emergency by Minister

9. (1) If it appears to the Minister, on the advice of the Controller or, in the absence of the Controller another member of the committee, that a disaster or emergency has occurred, is occurring, or is about to occur, he or she may declare that a state of disaster or emergency exists in respect of so much of the Territory of Norfolk Island as is, in his or her opinion, affected or likely to be affected by the disaster or emergency.

(2) A declaration under subsection 9(1) must be made in writing in a manner and form determined by the Minister and must be published or announced in accordance with the Plan.

(3) A declaration under subsection 9(1) remains in force for 72 hours and may not be extended or renewed without a resolution of the Legislative Assembly.

(4) (a) The Minister may call and convene an emergency meeting of the Legislative Assembly with such notice as he or she considers appropriate, upon making a declaration of disaster or emergency for the purpose of extending or renewing the state of disaster or emergency for such time as the Legislative Assembly may determine.

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(b) A declaration of disaster or emergency may be extended for the purpose of response operations under this Act and the Plan, and on the advice of the Controller for recovery operations under this Act and the Plan.

(5) The Minister may at any time, after taking the advice of the Controller, or in the absence of the Controller another member of the committee, revoke a declaration under this section.

Powers of committee, and authorised officers during State of Disaster or Emergency

11. (1) On the declaration of a state of disaster or emergency and while that declaration remains in force the Controller must take any necessary action to carry the Plan into effect and cause such response and recovery operations to be carried out as he or she thinks appropriate.

(2) Without limiting the generality of subsection 11(1), but subject to any regulations which may be prescribed (if any), the Controller, a member of the committee, or an authorised officer may, if of the opinion that it is necessary to do so, do or cause to be done all or any of the following things for the purposes of responding to or, subject to subsection 13(3), recovering from a disaster or emergency –

(a) by notice in writing in a form approved by the Controller, require the owner, or a person for the time being in charge, of any real or personal property in a disaster or emergency area to place it under the control or at the disposition of a person nominated by the Controller, or the committee member, appointed officer, or authorised officer;

(b) direct and cause the evacuation and removal of persons or animals from a disaster or emergency area, or part of a disaster or emergency area, or from any area within the Territory of Norfolk Island which is affected by the disaster or emergency or required for the response to a disaster or emergency, and remove to such place as he or she thinks fit any person or animal found within such an area;

(c) enter and, if necessary, break into any land, building, structure or vehicle within the disaster or emergency area;

(d) take possession of any land, body of water, building, structure, vehicle or other thing within the disaster or emergency area or outside the area if reasonably required in response to the disaster or emergency;

(e) remove, demolish or destroy any building, structure, vehicle, animal or vegetation within the disaster or emergency area;

(f) shut off, or cut off, any supply of fuel, gas, electricity or water, or any drainage facility, within the disaster or emergency area or in any other area which affects such supply to the disaster or emergency area;

(g) direct or prohibit the movement of persons, animals or vehicles into or within the disaster or emergency area;

(h) remove to such place as he or she thinks proper any person who obstructs or threatens to obstruct response or recovery operations;

(i) give directions to any person whose responsibilities require him or her to engage in response or recovery operations, or who is so engaged;

(j) ration and distribute food, water, fuel, gas, or electricity or any other thing reasonably required to be rationed and distributed.

(3) An authorised officer may direct a person who the authorised officer reasonably suspects has committed, is committing or is about to commit, an offence against this Act to state the person’s full name and usual place of residence and to produce evidence of the person’s identity.

The approved format for the declaration is at Annexure 16.

5.1.2 Criteria for recommending a declaration

While it is not possible to specify every eventuality that may justify a declaration, the following factors provide general guidance:

1) The situation must be a “disaster” or an “emergency” within the meaning of the Act

This means that there is an occurrence that has caused, or threatens to cause, loss of life or injury to persons or animals or damage to property;

and

it is of such a nature or magnitude that extraordinary measures are required in order to protect human or animal life or property (a “disaster”);

or

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whilst not constituting a disaster should, in the opinion of the responsible Minister, be dealt with under the Act because of:

the diverse resources required in response to the emergency, or

the likelihood of the emergency escalating into a disaster, or

for any other reason

(an “emergency”).

As the personal liberties and the legal and property rights of individuals can be significantly affected by a declaration it must be reasonable, that is, it must be lawful, necessary and proportionate to the particular circumstances faced.

The discretion conferred by the Act on the responsible Minister is not totally open-ended – it must be justifiable before a court of law or an executive enquiry, such as a Coronial Inquest or Royal Commission, both in terms of whether it was made reasonably or was not made reasonably.

2) Resourcing considerations

The structure of the Act makes it clear that the responsible Minister should be satisfied by the information available to him/her from the Controller that the following is required:

i. The extraordinary powers provided by s.11(2) may be required (e.g. take possession of land and property, ration supplies and remove people from the disaster area); and/or

ii. That coordination of the resources of more than one agency or organization will be required to meet the needs of the situation.

3) Other considerations

The following may also be relevant in determining whether a declaration is required:

i. Will the incident require sustained response operations? ii. Will the incident require extended recovery operations?

iii. Has the primary response agency (Police/Fire) requested support? iv. Are further resources not available to agencies required? v. Is coordinated public information required?

vi. Are Section 11 powers required by any agencies, including support agencies? vii. Is a declaration required to publicly signify the seriousness of the event?

A simplified decision-making process chart for declaring a disaster or emergency is at Annexure 17.

5.1.3 Determining the Disaster or Emergency Area

The Act allows the responsible Minister to include in any declaration of a “State of Disaster” or “State of Emergency” a geographic description of the physical area to which it applies, such area being:

“..as is, in his or her opinion, affected or likely to be affected by the disaster or emergency”. [ss. 9(1)].

While for some disasters or emergencies the area will be clear (e.g. Cyclone impact is most likely to affect the entire Territory), in making a recommendation to the responsible Minister for a declaration the Controller must exercise his or her professional judgment on the best available information, including the advice of the EMNIC.

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Considerations may include balancing the need for extraordinary powers to preserve life and property with that of allowing the community to continue life and activities in as normal a manner as possible. The EMNIC may also need to consider whether the area to which a declaration is effective needs to be expanded, contracted or changed entirely during the course of the event.

5.1.4 Announcement of a Declaration

For the purposes of the Act any declaration of a “State of Disaster” or “State of Emergency” must, where physically possible, be announced as soon as practicable by the Chairperson and as a minimum:

i. on Norfolk Island Radio – to be repeated every 15 minutes in the first 2 hours, every 30 minutes in the next 6 hours and every hour thereafter

ii. by publication in the next edition of the “Norfolk Islander” newspaper and the Norfolk Online electronic publication, and

iii. in the next published Government Gazette.

Similarly, any extension of a declaration under ss.9(4) of the Act is to be publicly announced in the same way.

Where the NORDISPLAN is moved to “Stand-down” stage as below, the Chairperson will ensure that this is announced sufficiently to inform the public that the danger presented by particular disaster or emergency for which the NORDISPLAN was activated has passed.

5.1.5 Requisitioning Property

Section 11(2)(a) of the Act provides to the Controller, an EMNIC member, or an authorised officer power during a declared disaster or emergency to direct the owner of any property, whether publicly or privately owned, to place it under the control or at the disposition of a nominated person (“requisition”).

While it is not desirable to attempt to define all the circumstances or all the property types that may be requisitioned, the following guidance is provided to assist the relevant officers to make an informed decision.

The relevant considerations may include:

i. Is the property necessary to preserve life or property? ii. Does the officer, or a nominated person, have the necessary skills to safely and

effectively operate the property (e.g. heavy machinery)? iii. Will the requisition and use of the property actually contribute to the task at hand? iv. What additional risks might the use of the requisitioned property present?

In exercising the discretion provided by the Act, the principles of lawfulness, necessity and proportionality will apply if any decision is subsequently reviewed by a court of law or executive enquiry.

In every case where property is requisitioned a written notice must be issued. Where property is volunteered by an owner for use during a declared disaster or emergency it is preferable that on every occasion a written requisition notice be issued to ensure that the potential loss or damage to that property is covered by the statutory compensation provisions. The approved form for requisition property is at Annexure 18.

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5.2 INITIATION OF THE NORDISPLAN

The status level of the NORDISPLAN will be in response to an incident or emergency that requires a coordinated community response. The Controller is authorised to determine the level of the NORDISPLAN at any time.

There are three (3) levels of the NORDISPLAN:

1. Stand-by

2. Activation

3. Stand-down

5.2.1 Stand-by

When the Controller believes a disaster or emergency is likely to occur –

The Controller (or the Deputy or delegate), in consultation with the EMNIC, will:

initiate the ‘Stand-by’ level of the NORDISPLAN

inform all of the FSCs of initiation and direct that the relevant Sub Plan be initiated to that level so that each component of EMNI is available for deployment immediately if the “Activation” level is initiated

place the Emergency Operations Centre (EOC) on ‘Stand-by’ by directing that it be fully staffed on a 24 hour basis and ensuring it is prepared for immediate action, and

consider whether a recommendation should be made:

i. to the responsible Minister for the declaration of a State of Disaster or Emergency; and/or

ii. to an external agency for the provision of additional assistance.

The Chairperson (or the Deputy or delegate) will:

advise the responsible Minister and the Administrator of the level of initiation

convene an urgent meeting of the EMNIC, if one has not already occurred

if the Controller considers that a declaration of a State of Disaster or Emergency is, or may be, required - ensure that the appropriate documentation is prepared and is ready to be submitted to the responsible Minister

make the necessary administrative support arrangement to support EOC operations

prepare to request external assistance from the Australian Government via the COMDISPLAN, and

initiate public alert messaging as applicable to the event.

The Functional Service Coordinators will increase their level of preparedness in anticipation

for an immediate and appropriate response, including contacting all personnel in their FSA.

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5.2.2 Activation

When the Controller believes a disaster or emergency is imminent, has occurred or is occurring -

The Controller (or the Deputy or delegate) will:

initiate the ‘Activation’ level of the NORDISPLAN

request a declaration of a 'State of Disaster' or ‘State of Emergency’ be made by the responsible Minister, and

inform all of the FSCs of initiation and direct that their relevant Sub Plan be initiated to that level so that each component of EMNI commences operations as necessary to meet the needs of the disaster/emergency.

Not all FSA Sub Plans need be moved to the ‘Activation’ level at the same time, or at all. The initiation of ‘Activation” of Sub Plans depends on the need of the particular event.

The Chairperson (or the Deputy or delegate) will

advise the responsible Minister and the Administrator of the level of activation

ensure that the appropriate documentation is prepared, signed by the Controller and submitted to the responsible Minister for the declaration of a 'State of Disaster' or ‘State of Emergency’

initiate public alert messaging as applicable to the emergency, this is to include appropriate public information contact numbers, and

ensure that sufficient administrative, logistical or other required support is provided so that the EOC can operate effectively.

The Functional Service Coordinators will

initiate their Sub Plans as appropriate to the emergency, or as directed by the Controller.

Not all functional Services or components must necessarily be deployed, as some may remain on 'Standby' in reserve for subsequent support operations.

5.2.3 Stand Down

Where the Controller considers that the circumstances which caused the initiation are no longer present and there is no further danger to the public, in consultation with the EMNIC:

The Controller (or the Deputy or delegate) will:

initiate the ‘Stand-down’ level of the NORDISPLAN

advise all of the FSCs of the ‘Stand Down’ and direct that all or any one or more of the relevant Sub Plan be stood down

stand down the Emergency Operations Centre (EOC) to the appropriate level, and

prepare a written post-activation debriefing within 7 days.

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The Chairperson (or the Deputy or delegate), will:

advise the responsible Minister and the Administrator of the move to ‘Stand-down’, and

initiate public alert messaging as applicable to the event.

The Functional Service Coordinators will:

stand down their Sub Plans

stand-down their members, as appropriate to the emergency, or as directed by the Controller, and

conduct immediate debriefs with their FSA members, and

within 7 days prepare and furnish Post Activation Reports on their activities to the Chairman.

The EMNIC will:

undertake appropriate post-activation activities, including debriefs and reports as soon as practical or, in any event, within 72 hours of stand down.

The Chairperson will

consolidate debriefs within 14 days following stand down of the NORDISPLAN and prepare a post activity report, as soon as practicable, for endorsement by the EMNIC

ensure that any ‘lessons learned’ and other recommendations and outcomes from post-activation activities are incorporated into arrangements as appropriate, and

provide a copy of the consolidated debrief to the responsible Minister and the Administrator. The consolidated debrief may be circulated to other stakeholders, including each FSC, as authorised by the EMNIC.

The standard Debrief template is at Annexure 19.

5.3 MOVING BETWEEN LEVELS

Nothing in this NORDISPLAN prevents the Controller from moving the status of the NORDISPLAN directly to the “Activation” level or moving down to the “Standby” level at any time, depending on the circumstances of the particular event being faced.

Where the NORDISPLAN has been “stood-down” it must be reinitiated.

5.4 RECOVERY

Recovery operations are defined as those which provide the means for:

“..recovery of the normal pattern of life of individuals, families, and communities affected by a disaster or emergency and includes –

(a) the restoration of essential facilities and services;

(b) the restoration of other facilities and services necessary for the normal functioning of a community;

(c) the provision of material and personal needs;

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(d) the provision of means of emotional support...”3 Recovery operations aim, as far as possible, to assist the community to manage its own recovery, while recognising that there may be a need for external technical, physical and financial assistance. Recovery is characterised by a complex array of issues and a broad range of organisations and stakeholders. Recovery procedures and processes often have a lasting impact on the community and may be costly in terms of financial and other resources.

The key principles which underpin recovery operations in the Territory are:

1. Disaster recovery is an integral part of emergency management, which includes the broader components of prevention, preparedness and response. Planning for recovery is integral to emergency preparation and mitigation actions may often be initiated as part of recovery, and

2. Disaster recovery includes physical, environmental and economic elements, as well as psychosocial wellbeing. Recovery can provide an opportunity to improve these aspects beyond previous conditions, by enhancing social and natural environments, infrastructure and economies – contributing to a more resilient community.

Successful recovery relies on: i. understanding the context

ii. recognising complexity

iii. using community-led approaches

iv. ensuring coordination of all activities

v. employing effective communication, and

vi. acknowledging and building capacity.

Recovery operations are included in the Welfare FSA Sub Plan.

5.5 RESOURCES

The resource list at Annexure 20 identifies the resources that organisations have on-island, which could assist them in combating emergencies.

5.6 EXPENDITURE AND REQUISITIONING PROPERTY

Any proposals or questions regarding expenditure by any element of the EMNI for operational purposes during activation of the NORDISPLAN are to be brought to the attention of the Chairman for approval.

The Disaster and Emergency Relief Fund Committee (DERFC) has primary responsibility for the distribution of emergency relief funding to affected community members. Its operations are governed by a specific Sub Plan.

Under the provisions of s.12 of the Act, owners of property affected by the exercise of s.11 powers (compulsory requisitioning of property etc) have defined rights to compensation by the Norfolk Island Government.

3 Disaster and Emergency Management Act 2011, s.3

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5.7 EMERGENCY OPERATIONS CENTRE (EOC)

The EOC on Norfolk Island is a dedicated facility established and staffed (as required) to coordinate operational responses, resource acquisition and deployment; and recovery from an emergency situation.

The primary EOC is located at the southern end of the Emergency Services Centre (ESC) on Ferny Lane, within the Emergency Services Centre, adjacent to the airport runway 1.1 approximately 2kms from the intersection with Douglas Drive.

An alternative operation centre has been identified at the Police Station, although in the event that the EOC facility is non-operational due to damage or any other cause, the Controller will determine the most appropriate alternate location.

Specific details regarding the activation and operation of the EOC can be found in the EOC Sub Plan.

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6. SUB PLANS

NORDISPLAN Sub Plans are developed in relation to each functional service area and for specific critical tasks, like the procedures for the EOC.

They are to be produced by the respective FSC or other officers as directed by the EMNIC. Sub Plans are approved for implementation by the Chairman on the recommendation of the EMNIC.

Government agencies and private organisations also prepare and issue plans as required. These plans are managed by those agencies and should consider where appropriate the coordination arrangements as detailed in the NORDISPLAN.

Sub Plans have the following common structure:

1. Title

2. Aim

3. Objective

4. Responsible FSC

5. Standard Operating Procedures Containing: General background information FSA responses to each identified hazard FSA responses at each level of NORDISPLAN initiation Lists of FSA contacts & available resources, including critical infrastructure Relevant recovery operations

6. Review and amendment

7. Authorisation

Sub Plans are required for the following Functional Service Areas:

Plan No. Functional Service Area

SP_01 Airport & Ports

SP_02 Border Protection

SP_03 Fire

SP_04 Health

SP_05 Media & Public Information

SP_06 Police

SP_07 Telecommunications Infrastructure

SP_08 Transport & Resources, and

SP-09 Welfare

Further Sub Plans may be developed and authorised as required by the EMNIC. A full list of all current Sub Plans and their purpose and current status is at Annexure 21.

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7. RESPONSE PLANS

Response Plans (RPs) are the responsibility of the Controller and address identified risk events for the Norfolk Island Territory. They are approved for implementation by the Chairman on the recommendation of the EMNIC.

RPs have the following common format:

1. Title

2. Aim

3. Objective

4. Responsible FSC

5. Standard Operating Procedures Containing: General background information Responses to each identified hazard for each FSA Lists of FSA contacts & available resources (including critical infrastructure) Relevant recovery operations

5. Review and amendment

6. Authorisation

The following Response Plans (RPs) are required:

Plan No. Specific Risk Event

RP_01 Commercial airliner crash

RP_02 Cat 3+ cyclone passing near to the island resulting in casualties, infrastructure and building damage.

RP_03 Structural fire (commercial building/s – more than 10 people)

RP_04 Small aircraft (6 person) ditching into the ocean near the island

RP_05 Explosion

RP_06 Epidemic – contagious disease (Human to Human)

RP_07 Terrorist Incident

RP_08 Marine Search and Rescue

Additional RPs may be developed depending on the results of risk assessments conducted by the EMNIC. A full list of all Response Plans and their purpose and current status is at Annexure 22.

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8. CRITICIAL INFRASTRUCTURE

EMNIC has identified the following critical infrastructure areas in Norfolk Island, as aligned to the FSAs, for the purposes of this Plan:

1. Airport & Ports

2. Border Protection

3. Fire

4. Health

5. Media & Public Information

6. Police

7. Telecommunications Infrastructure

8. Transport & Resources

9. Welfare, and

10. Others

Full descriptions of the location, characteristics and functions of this critical infrastructure are included at Annexure 23.

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9. PUBLIC AWARENESS

Public involvement and participation is a key principle in emergency management in Norfolk Island.

Norfolk Island Government plays a critical role in the development and maintenance of public awareness. That role is undertaken by both the EMNIC and all other elements of the Administration.

In particular, Norfolk Island Government has responsibility for:

i. Community awareness programs about hazards of natural disasters

ii. Assistance with prevention and preparedness programs and measures to mitigate risks from these hazards

iii. Promoting the installation and maintenance of smoke alarms in private dwellings, and

iv. Support for school safety education programs about natural disasters.

Such community awareness activities may include, but are not limited to, distribution of publications (including those prepared by Norfolk Island Government, the Australian Government or EMA), public meetings or articles in local newspapers and other media.

In promoting community awareness, the transient nature of the island population needs to be taken into consideration. This can mean that up to 20% of the population present during a disaster or emergency will not necessarily be familiar with the terrain, geography, locality or identity of key features and personnel involved in emergency management activities.

Clarity and consistency of the details of public messages will therefore be critical to successful information transfer and this principle guides the development of the FSC (Media & Public Information) Sub Plan.

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10. TELECOMMUNICATIONS

The environment and geographic isolation of Norfolk Island present unique communication challenges. Communications on the island is a combination of a copper and optic fibre network, mobile telephone, and radio and internet services.

Communications between Norfolk Island and mainland Australia is made available via a satellite link only, the primary transmitter/receiver being located at the Norfolk Island Radio Station, on New Cascade Road, Burnt Pine.

A secondary satellite transmitter is located at the former ANZCAN depot at Anson Bay.

The telephone and radio repeater antennae array is located within the PA-NI area at the top of Mount Pitt.

During a disaster or emergency, it is possible the primary communications network to the mainland may be impaired due to malfunction or congestion. It is also possible that a satellite malfunction may also impair the island’s mobile phone network, rendering it inoperable. Agencies should take adequate measures to ensure they have secondary communications available in the form of radio or satellite telephone, and that these systems are interoperable with other agencies communication means on the island.

Agencies such as Police, the Fire Service, Ambulance and the Airport operate their own communications within their respective organisation, utilising the GSM telephone network or VHF radio.

Further detailed information on telecommunications systems and resources is contained in Annexure 24.

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11. ANNEXURES

List of Annexures

1. Current Risk Ratings

2. Risk Assessment Methodology

3. EMNI Organisation Chart

4. EMNIC Current appointments

5. Functional Service Coordinator current appointments

6. Authorised Officers current appointments

7. Current EMNI contact details

8. Roles and responsibilities in an emergency

9. MOUs – current list

10. MOAs – current list

11. NORDISPLAN – planning component relationships

12. EMNI – NORDISPLAN Review & Events Cycle

13. Request for External Assistance format

14. Memorandum of Understanding with Emergency Management Australia

15. Claim for payment format

16. Declaration of a State of Disaster or State of Emergency

17. Notice of Requisition of property

18. Simplified declaration decision-making process

19. Debrief format

20. Emergency Resources list

21. Sub Plan status list

22. Response Plan status list

23. Critical Infrastructure list

24. Telecommunications infrastructure list

25. Glossary of Terms

Documents

Emergency Management Norfolk Island · disaster/emergency and was prepared by the Emergency Management Norfolk Island Committee pursuant to Section 8 ... AGD Attorney-General’s