Queensland Fire and Emergency Services
Emergency Management
Queensland
EMERGENCY ALERT
Guidelines
Version 2.0
EMERGENCY ALERT.
BE WARNED. BE INFORMED.
Queensland Emergency Alert Guidelines V2.0
The Queensland Government supports and encourages the dissemination and exchange of information. However, copyright protects this document. The State of Queensland has no
objection to this material being reproduced, made available online or electronically, but only if recognised as the owner of the copyright and this material remains unaltered.
Copyright enquiries about this publication should be directed to Queensland Fire and Emergency Services, GPO Box 1425, Brisbane Qld 4001.
DISCLAIMER
Every effort has been made to ensure that the information contained within these guidelines is accurate and where possible reflects current best practice. However, Queensland Fire and
Emergency Services does not give any warranty or accept any liability in relation to the content of material contained in this guide.
©
The State of Queensland (Queensland Fire and Emergency Services) Published July 2012. Reviewed: September 2015.
Queensland Emergency Alert Guidelines V2.0
AIM
The aim of the Queensland Emergency Alert Guidelines (the Guidelines) is to establish how
Queensland will manage and operate Emergency Alert. The Guidelines should be used in
conjunction with individual agency standard operating procedures or standing orders.
AMENDMENTS
Proposals for amendment or addition to the contents of the Guidelines are to be forwarded to:
Assistant Commissioner, Emergency Management
Queensland Fire and Emergency Services
Attn: Disaster Management Branch
Postal Address:
GPO Box 1425
BRISBANE QLD 4001
Physical
Address:
Emergency Services Complex
125 Kedron Park Rd
KEDRON QLD 4031
Version control of the Guidelines is managed by the QFES Disaster Management Branch. Reissue
of the Guidelines following amendment or review will be recorded in the table below and advice of
reissue will be distributed throughout the disaster management network. Recipients should take all
appropriate actions 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 QFES Disaster Management Branch.
Version
2.0
Amendment
Approved

Updated to reflect current practice and the
inclusion of Queensland Fire and Emergency
Services

Emergency Management Person’s and
Authorising Officer’s reviewed and updated to
reflect machinery of government changes

The inclusion of guidelines for predefined
geographic information system polygons

Revised Guideline structure

Inclusion of a new section 3.13 Evidence Based
Improvements (in accordance with IGEM Report
1, Recommendation 4)
Steve Grant
REVIEW DATE
The Commissioner, QFES is to ensure that this Guideline and its associated procedures are
reviewed every three years or as required.
3
Queensland Emergency Alert Guidelines V2.0
CONTENTS
1.
1.1
1.2
1.3
INTRODUCTION ................................................................................................................. 5
Background .......................................................................................................................... 5
System capabilities .............................................................................................................. 5
Audience .............................................................................................................................. 6
2.
ADMINISTRATIVE REQUIREMENTS ................................................................................ 6
2.1
2.2
2.3
2.4
2.5
2.5.1
2.5.2
2.5.3
2.5.4
2.6
Legislative obligations and processes ................................................................................. 6
Security ................................................................................................................................ 6
Community preparedness.................................................................................................... 6
Management and use of Emergency Alert .......................................................................... 7
Emergency Alert Roles and Responsibilities ...................................................................... 7
Emergency Management Person ........................................................................................ 7
Authorising Officer ............................................................................................................... 7
Incident Controller ................................................................................................................ 8
User ...................................................................................................................................... 9
Training ................................................................................................................................ 9
3.
OPERATIONAL USE ........................................................................................................ 10
3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
3.9
3.10
3.11
3.12
3.13
When is Emergency Alert to be used? .............................................................................. 10
Decision and authorisation process .................................................................................. 11
Polygon/Campaign Areas: ................................................................................................. 13
Message severity ............................................................................................................... 13
Threat direction .................................................................................................................. 13
Message construction ........................................................................................................ 13
General message format ................................................................................................... 14
Voice message to landlines ............................................................................................... 14
SMS message to mobiles .................................................................................................. 14
Management of warning consequences............................................................................ 15
Cross-border arrangements .............................................................................................. 15
Campaign Completion ....................................................................................................... 15
Evidence Based Improvements ......................................................................................... 16
ABBREVIATIONS ..................................................................................................................... 17
GLOSSARY ............................................................................................................................... 18
APPENDIX 1: QUEENSLAND LEGISLATIVE OBLIGATIONS .............................................. 19
APPENDIX 2: EMERGENCY ALERT GUIDING PRINCIPLES ............................................... 22
APPENDIX 3: TEMPLATE MESSAGES FOR VARIOUS HAZARDS .................................... 23
APPENDIX 4: TECHNICAL PREPARATION ........................................................................... 28
APPENDIX 5: EMERGENCY ALERT REQUEST FORM ........................................................ 30
APPENDIX 6: GUIDELINES FOR USING PREDEFINED GIS POLYGONS ......................... 32
4
Queensland Emergency Alert Guidelines V2.0
1.
INTRODUCTION
Queensland is vulnerable to natural disasters, particularly cyclones, floods, severe weather events
and bushfires. Effective community warning systems are a key component in managing
emergencies and can assist in preventing the loss of life.
Emergency Alert (EA) is one of the tools that can be used to warn communities of an impending
emergency and is a critical element of emergency response. The Queensland Emergency Alert
Guidelines govern the use of EA in Queensland.
1.1
Background
Emergency Alert (EA) is one of the tools that can be used to warn communities of an impending
emergency and is a critical element of emergency response. EA is a national telephone warning
system used in Queensland to send voice messages to landlines and text messages to mobile phone
within a defined area about likely or actual emergencies. EA relies on the telecommunication
networks to send warning messages to mobile telephones. Text messages can be sent to the last
known location of handsets at the time of the emergency. This includes visitors and travellers. The
registered service address and telephone number comes from the Integrated Public Number
Database which contains all public and private phone numbers in Australia.
Each use of the system is known as a campaign. The management and administration of EA in
Queensland is the responsibility of QFES. This includes ongoing maintenance, testing and capture of
EA costs including measures for accountability and cost recovery, record-keeping and reporting. The
State supports local government, where possible, to draft messages and prepare maps of potential
alert areas. The Queensland Emergency Alert Guidelines govern the use of EA in Queensland as
well as providing template messages for various hazards.
There are also non-government, commercial opt-in warning/alerting systems that provide SMS,
landline, email, and social media alert messages. State agencies are encouraged to ensure warnings
and notifications are consistent and integrate with any warning systems operated by local councils.
1.2
System capabilities
EA provides the capability to send warning messages (voice and text messages) to targeted areas of
the Queensland community.
The system will:
 define an emergency incident area on a map, known as a Campaign Area, by utilising a
Geographic Information System (GIS) product to locate and draw the incident area polygon;
 identify the phone services located within that polygon area by querying the Location Based
Number Store (LBNS);
 send a voice message of up to 35 seconds in duration to all identified landline telephone services
based on their physical location. N.B. longer messages can be sent but will cost more and may
degrade the message delivery time;
 send a text message of up to 160 characters to all identified mobile phone services based on
their physical location and/or service (billing) address; and
 report on the delivery of these messages.
Campaign analysis, status and reporting tools within EA assist users in making informed decisions
regarding the effectiveness of a Campaign prior to, during and after the message has been
distributed.
Further information regarding the system capabilities and technical preparation is available at
Appendix 4.
5
Queensland Emergency Alert Guidelines V2.0
1.3
Audience
The Guideline is intended for all persons potentially involved in the use of EA within Queensland and
operating under the Disaster Management Act 2003 or the Fire and Emergency Services Act 1990.
This may include District Disaster Coordinators (DDCs), Local Disaster Coordinators (LDCs), and
staff of QFES. All individuals to whom the Guideline applies are responsible for its application.
2.
ADMINISTRATIVE REQUIREMENTS
2.1
Legislative obligations and processes
The Integrated Public Number Database (IPND) is a Telstra maintained database that contains
information related to all listed and unlisted public telephone numbers in Australia, regardless of the
service provider. EA draws telephone numbers and geo-coded information from the LBNS, which is
a secure database that interfaces with the IPND. These data sources are governed by the
Telecommunications Act 1997 (Cth) and the Privacy Act 1988 (Cth), and access to this data imposes
on Queensland a number of legal obligations which are summarised in Appendix 1. It is important
that all Users of EA understand the consequent legislative implications and that the data can only be
lawfully obtained and used when creating a Campaign for an EA or during defined training and/or
exercise periods.
Personal information being held in the LBNS is classified at a minimum For Official Use Only, as
outlined in the Australian Government Protective Security Policy Framework. The Australian
Government Information Security Manual (ISM) contains the relevant principles that apply to the
electronic transfer of For Official Use Only data across UNCLASSIFIED networks. The ISM can be
downloaded from the Australian Signals Directorate website at www.asd.gov.au.
2.2
Security
Queensland ensures the security of EA through the following measures:
 Security of Access to the EA system is managed via three avenues; use of Telstra’s Virtual
Private Network and the Queensland Fire and Emergency Services (QFES) secure internal
network; user log-ins are required to access the EA system; physical security measures have
been adopted to secure the Next-G cards provided by Telstra.
 Selection and briefing of Authorising Officers and Users by agency senior officials.
 Legal Services must be engaged to draft a relevant undertaking to be obtained from any third
party agent acting for Queensland on a commercial fee for service and/or contractor engaged by
Queensland in relation to EA.
 Adherence to the Queensland Government Information Security Classification Framework and
Commonwealth Protective Security Policy Framework where relevant.
2.3
Community preparedness
Queensland’s policy is to use EA as one element in a suite of existing mediums for community
information and warning notifications.
Queensland’s media Campaign message is that:
 EA is but one measure that can be used to pass warnings;
 People should seek information from other sources;
 People should further advise neighbours, family and other community members of EA warning
messages received;
 When an EA is issued, people will be directed to web pages or call centres, which will provide
information on how they can best protect themselves. They will also be directed to listen to local
radio; and
 Complementary warning mediums include: official warning agencies; official media; social media;
telephony based; radio-based; TV-based; internet-based; local sirens; and person-to-person.
The national website www.emergencyalert.gov.au provides information about the warning system
and includes links to websites where those affected can access public safety information. For
Queensland, there are links to Queensland’s Disaster Management website
www.disaster.qld.gov.au. The Disaster Management website contains links to other sites where the
public can access information about disasters. During alerts, pages containing details of the event
6
Queensland Emergency Alert Guidelines V2.0
will include public information on what people should do to protect themselves and will also contain
links to other websites where information can be accessed.
2.4
Management and use of Emergency Alert
The management and administration of EA in Queensland is the responsibility of QFES.
This includes:
 The ongoing maintenance;
 Testing and capture of EA costs including measures for accountability and cost recovery;
 Record-keeping and reporting;
 Future development;
 Contract management; and
 Performance measurement.
2.5
Emergency Alert Roles and Responsibilities
Every person exposed to or involved in the EA process should ensure that situational awareness and
intelligence informs all relevant decision making associated with running of the EA campaigns.
The following roles ensure the legislation, guidelines and the EA process is adhered to.
2.5.1 Emergency Management Person
An Emergency Management Person (EMP) is appointed by the Australian Government AttorneyGeneral via an instrument under the Telecommunications Act 1997 (Cth).
The EMP is responsible for:
 Coordinating and managing policies dealing with the use of EA in Queensland;
 Reviewing this Guideline and its associated procedures, following the end of each annual tropical
cyclone season and before the next bushfire season;
 Notify the Commonwealth of the full details associated with any breach on the use or disclosure
of information gained from the LBNS database; and
 Ensuring persons using the system are appropriately trained.
The EMP has the authority to give access to the LBNS or to delegate this authority to classes of
persons, based on appointments. In Queensland these delegates are known as Authorising Officers
(AO) and Users.
2.5.2 Authorising Officer
The AO has the authority to initiate an EA and the overall responsibility of all aspects of the EA
Campaign. Further details regarding the technical preparation of a campaign is available at
Appendix 4.
The AO is responsible for:
 Ensuring the management of consequence arrangements are in place (see 3.10);
 Ensuring that the principles have been complied with (checklist at Appendix 2);
 Approving the Campaign as being compliant with the principles and not event specific practice;
 Authorising the release of the Campaign;
 Recording all details and timings of the authorisation request and approval; and
 Liaise with the IC to ensure all necessary stakeholders are aware of the Campaign;
 Maintaining a good situational awareness of the event, the appropriateness and timeliness of the
warning, the consequences on the community, and the political impact of warning.
7
Queensland Emergency Alert Guidelines V2.0
The AO’s in Queensland are:
 Commissioner, QFES
 Deputy Commissioner, QFES
 Assistant Commissioner, QFES
 Chief Superintendent, QFES
 Regional Manager, Rural Operations, QFES
 Director, Regional Operations, QFES
 Director, Disaster Management Branch, QFES
 Executive Manager, State Operations Coordination Branch and Far Northern Region, QFES
 Director, State Emergency Service, QFES
 Regional Manager, State Emergency Service, QFES
 Chair, State Disaster Coordination Group
 Commander, State Disaster Coordination Centre
 State Disaster Coordinator
2.5.3 Incident Controller
In the context of EA, the Incident Controller (IC) is the person responsible for requesting an EA
message be sent to a particular geographic area 1.
In a natural disaster event (or a potential event) the IC could be the LDC whereas in a fire or
hazardous material incident the IC would be an Officer. Other examples of an EA IC include a DDC,
or SunWater Emergency Event Coordinator or the Southeast Queensland Water Grid Manager for
water grid emergencies that may impact on public safety and possible property loss.
The IC does not need to have specific knowledge about the operation of EA but must understand
their role and responsibilities if requesting an EA.
Once aware that an event requires a message to be passed to the community, the IC should
consider the most appropriate warning mechanisms that are available.
The IC is responsible for:
 Deciding EA as the required warning option:
 Clearly identifying the need for community information and defining the Campaign Area where the
EA will be delivered;
 If evacuations are required, consideration must be given to specifying evacuation routes and/or
where the threat is coming from. If people are directed to an evacuation centre, it should already
be open and staffed. Evacuation messages must plainly indicate the urgency and the
expectation.
 The IC should provide a completed EA Request Form to the SDCC Watch Desk;
 Where circumstances are impractical and for expediency, the IC can phone through the EA
request, however the relevant paperwork is to be followed up in due course;
 For fire, hazardous materials and toxic/smoke plumes, the IC should provide the QFES
INCFORM 39, completed in accordance with Incident Directive 21.3 to the SDCC Watch Desk or
State Operations Centre (SOC);
 Confirm the Campaign Area entered into EA – this will be emailed by the User to the IC;
 Confirm the audio and SMS messages are suitable to the operational situation and contain clear
and relevant information;
 The IC is required to contact District and Local Disaster Management Groups prior to the release
of an EA that impacts their area;
 Make preparations for a surge of calls to local government call centres and emergency services.
For example: 000 centres and calls to help numbers such as 132 500, 13 Health etc.;
 Encourage local government to provide supporting information on their website as well as
requesting local media to broadcast the relevant information; and
 If the IC is from an external agency such as local government, contact QFES at local or State
level who will then contact the appropriate AO and EA User.
1 Please note, the term Incident Controller (IC) is not prescriptive, and this term may be used in a variety of emergency events and
systems.
8
Queensland Emergency Alert Guidelines V2.0
2.5.4 User
The EA User is a person who has the required training and competency to use EA. For example,
Watch Desk staff or other designated officers within the Operations and Emergency Management
Branch, QFES. All EA users must be authorised by an EMP either by name or by class of position,
as persons authorised to access the LBNS database.
Further details regarding the technical preparation of a campaign is available at Appendix 4.
In accordance with the EA request, the EA User will:
 Log on to the EA system, identify the area at appropriate resolution, and draw or import the
Campaign polygon (ideally, the polygon should be kept as simple as possible by limiting the
number of points on the map).
 Complete necessary fields, in accordance with internal procedures;
 Confirm polygon area and message content with the IC and/or AO;
 Request the AO to approve the release of the Campaign;
 Submit the Campaign; and
 Monitor progress of the Campaign and record the results.
2.6
Training
Disaster management training in Queensland is undertaken in accordance with the Queensland
Disaster Management Training Framework (Framework). The Queensland Disaster Management
Training Framework includes training relating to warnings and specifically EA. In accordance with
the Disaster Management Training Handbook it is the responsibility of all disaster management
stakeholders to undertake the training relevant to their role. It is anticipated that all stakeholders
involved in the EA process will complete the mandatory training within a twelve month period of
commencing in their role.
Competency gained through the completion of EA training should be maintained and tested through
operational activity; participation in exercises; and/or regular refresher training.
Training undertaken in accordance with the Queensland Disaster Management Training Framework
is delivered by approved QFES Officers with the relevant disaster management content knowledge
and training qualifications.
9
Queensland Emergency Alert Guidelines V2.0
3.
OPERATIONAL USE
This section provides advice to ICs who are considering using EA.
3.1
When is Emergency Alert to be used?
Queensland’s use of EA will be guided by applying the following decision making criteria to emerging
events:

Certainty
o If the impact of an event is expected within 12 hours, what factors could increase or decrease
the threat?
o Is the expected impact inevitable?

Severity
o Is there a potential for loss of life and/or a major threat to a significant number of properties or
the environment?

Timeframe
o Is the event going to occur in a timeframe that makes the use of other warning methods
ineffective i.e. a significant number of people need to be warned in a short period or
overnight?
o Consider the time of day the message is being sent i.e. late at night or in the early hours of
the morning and the impact it may cause
o Is the event going to occur in a timeframe too short to allow EA to be used effectively e.g. a
microburst can be a very destructive meteorological phenomena but usually only has a lifespan of 5-15 minutes, yet it can take up to 30 minutes to prepare and release a Campaign?
o Conversely, it may not be desirable to warn people 24 hours ahead of a cyclone due to the
often unpredictable nature of its path.

Frequency
o Is the event likely to happen so frequently as to raise unrealistic expectations in the minds of
the community about receiving alerts?

Similarity
o Is the event similar to those that would trigger the use of the Standard Emergency Warning
Signal (SEWS)?
o Is the event similar to an event that is currently occurring in or near the proposed Campaign
Area?

Action
o Does the community need to act in some way, for example listen to local media for detailed
information?
o Does the community need to move or stay in place?
The decision to request the use of EA should only be made by an AO or IC after consideration of the
principles in Appendix 2 Emergency Alert Guiding Principles.
Consideration must also be given to likely community behaviour, perceptions and consequence
management activities; particularly the time and resources required for authorities to establish
activities on which the community will rely after the EA Campaign has started. For example, if people
are requested to self-evacuate, where they should go and what facilities and resources will be
required when they arrive?
10
Queensland Emergency Alert Guidelines V2.0
The events below indicate the likelihood of an EA being requested but are not limiting or binding:




3.2
Definitely
Severe Bushfire
Imminent storm surge >
0.5 metre above
Highest Astronomical
Tide
Hazardous material
release
Tsunami land
inundation > 1 metre
(tide dependent)




Probably
Flash flooding
Chemical, biological,
radioactive threats
Imminent severe
cyclone – Cat 3 or
higher
Major flood likely to
inundate dwellings


Possibly
Localised severe
thunderstorm with
destructive winds
and/or intense rainfall
and/or large hail
Heatwave
Decision and authorisation process
Three stakeholders will take part in the decisions and authorisation process to facilitate an EA
Campaign, namely the IC, the User and the AO. The responsibilities of these persons in requesting,
authorising and managing an EA Campaign are outlined below. Where a campaign is initiated at the
State level, there may be fewer stakeholders involved in the process.
It needs to be recognised that there may be circumstances where pre-prepared polygons and
messaging for particular events are needed/necessary.
For rapid onset events, to prevent the delay of warnings to the community the SDCC WD can initiate
pre-prepared and pre-approved polygons and messaging. During these situations the SDCC WD will
inform local government of the warning given.
Refer to Figure 1 Emergency Alert Process Map and also to individual agency Standard Operating
Procedures (SOP) for detailed guidance.
11
Queensland Emergency Alert Guidelines V2.0
Figure 1 Emergency Alert Process Map
12
Queensland Emergency Alert Guidelines V2.0
3.3
Polygon/Campaign Areas:
It is important to clearly define the area required to receive the EA. The warning area can be
identified by importing a polygon directly into the EA system or manually drawing the map, based on
advice given by the IC.

Pre-prepared polygons and messaging for known at risk areas should be prepared well in
advance and stored for easy access on the QFES EA Portal;
A pre-defined area can be imported into EA with some GIS formats (the preferable format is
KML). It is critical that local governments have already tested this and understand the formats
required. All mapping must be checked with the SDCC Watch Desk to ensure that it can be
loaded into the EA system;
The Campaign Area could also reference to topographic or street maps etc;
The polygon can be generated based on coordinates; and
Maps provided to the WD must clearly state: the boundaries; direction of North; polygons should
be simple in design (square or rectangle is preferred) i.e. less vertices in the polygon results in a
less complex boundary and will ensure messages are delivered quicker.




For more technical information about pre-prepared polygons and spatial data, refer to Appendix 5.
3.4
Message severity
The EA system does not follow a strict policy of ‘first in first out’ when processing Campaigns.
Campaigns with a higher priority (severity) will take precedence over those with a lower priority to
enable messages to be sent to those in greater danger. Priority 1 is the highest. The following table
provides guidance on when the EA System may be used and the relationship with the three alert
levels.
Message
Severity
Priority
General Meaning
Guidance on Use
Advice
3
There is no immediate danger. General
information to keep you up-to-date with
developments.
Unlikely that EA will be
used to disseminate
Advice messages
Watch
and Act
2
It is likely that you may be impacted by the
emergency. You may be in danger and should
start taking action to protect your life and your
family.
EA may be used to
disseminate Watch
messages
Warning
1
You will be impacted by the emergency. You are
in danger and must take action immediately.
Voice messages will be preceded by a four
second sound of the SEWS, followed by the words
“Emergency, Emergency”.
Most likely that EA will
be used to issue
Emergency Warnings
3.5
Threat direction
A feature of EA is that a threat direction can be included, which allows people closer to the threat,
that may be at a higher risk, to be advised before people who are further away. Threat direction is
applicable only for Campaigns with priority 1, which is a Warning. It cannot be set for Advice or
Watch and Act messages. The IC must indicate the threat direction, if required, on the EA Request
Form. A map or clear directions must be given to indicate where the threat is coming from.
3.6
Message construction
Warnings are intended to achieve two distinct outcomes – to inform the community of an impending
or current threat, and to promote appropriate actions. Agencies need to be very clear about whether
they need to achieve one or both of these outcomes when drafting a warning.
Messages should be worded to prompt appropriate community response and/or action. Warning
content and form must:
13
Queensland Emergency Alert Guidelines V2.0




be simple, arresting and brief;
be suited to the needs of the community;
be worded in accordance with advice from the relevant agencies; and
utilise appropriate templates.
Warnings should reflect the principles outlined in the Commonwealth policy paper Emergency
Warnings – Choosing Your Words (2008) available at www.ag.gov.au.
3.7
General message format
Queensland has pre-planned message templates (see Appendix 5) that comply with the National
Telephony Warning System Guidelines and the Common Alerting Protocol (CAP) to assist in the
timely development and dissemination of warnings to the community.
Header
SMS: - +61 444 444 444
Voice message: SEWS siren “Emergency, Emergency”
Event Type
Emergency/incident type (fire, flood, cyclone)
Event Category
Classification of warning (watch, warning)
Authority
Authorising agency
Location [Free Text]
Township/district (no km mentioned)
Event Description [Free Text]
Impact/threat details
Response Instruction [Free Text]
Advice on what actions community needs to undertake
Serial/Date/Time
Automated - generated by system
Please note that the following are examples only and provides guidance to the message form,
identifying where free text is required. Each agency will be required to develop the appropriate
wording. All messages will indicate they originated from telephone number 0444 444 444 but it will
not be possible to phone or SMS this number.
3.8
Voice message to landlines
Messages should be structured as above and ideally provided as typed text, which should be no
more than about 450 characters (including spaces). This equates to a 31 second length message,
which allows for the four second SEWS tone at the start of a Warning message.
Messages should preferably be no longer than 35 seconds in total, as the delivery speed may be
reduced. The system does allow for a maximum length of 4,000 characters; however this equates to
a message length of over four minutes.
The text received for EA voice messages may be altered slightly by the SDCC Watch Desk to allow
for the phonetic requirements of the system.
EA also allows the choice of male or female voices. In making the choice, Users should consider
that, in general, reassurance is better delivered by a female voice, whilst a call to action comes better
from a male voice.
3.9
SMS message to mobiles
SMS Campaign messages are limited to 160 characters including spaces. For this reason, great
care must be taken to ensure abbreviations are kept to a minimum to avoid confusion while ensuring
the message informs individuals of a particular danger and states an action required to be done
without delay. To ensure timely heeding of warnings by the general public, they must recognise the
initiating agency as being a credible organisation.
14
Queensland Emergency Alert Guidelines V2.0
3.10
Management of warning consequences
The management of the consequences of an EA Campaign must start with the initial decision by the
IC to use EA and must run concurrently with the decision, authorising and message construction
stages.
The AO, as the officer not directly managing the event, has overall responsibility for verifying that the
IC has addressed the consequence management measures that will be required. Many of these
measures are required at a local level and should be a critical part of the IC’s decision to utilise EA.
Consequence management measures will be event-dependent but will normally include:
 Informing others of its impending use. Primary considerations are:
–
media, particularly local radio, through QFES Media
–
Chief Executive Officer (CEO) of local government
–
Minister for Police, Fire and Emergency Services (this is performed by the User)
 Ensuring, together with Telstra, that the Campaign does not adversely affect the
telecommunications network;
 Ensuring pre-prepared websites and QFES social media pages have relevant information; and
 Establishment of a system to measure the effectiveness of the EA and other messages on the
ground.
Initial actions that the AO will take to ensure the following are contacted and briefed:
 QFES Media to issue information to the media and start uploading data to websites and QFES
social media pages;
 Smart Services Queensland or other call centres to warn of possible increase in calls; and
 The IC, to verify that any on-the-ground consequence management measures are in place or at
least in the process of being established.
The AO may appoint a consequence management coordinator to allow the AO to concentrate on
their primary authorising responsibilities and assist the User with defining the target area and
message construction.
3.11
Cross-border arrangements
For emergencies impacting on multiple jurisdictions, the QFES Watch Desk will be responsible for
engaging with other impacted jurisdiction/s to discuss cross-border issues and warning requirements.
These arrangements should mirror existing cross-boundary arrangements as far as possible, but
need to take into account a number of particular considerations:



Plan before an event using agency to agency contacts. QFES is responsible for agency
planning locally and between their State agency counterparts in New South Wales, Northern
Territory or South Australia. Planning should cover how a warning affecting both sides of the
border will be managed.
Act with the urgency that the situation demands. These guidelines will reflect the primary
objective of the system: that is if an emergency is life threatening - issue the warning. Where
practical, the User should advise the other jurisdiction/s during the warning process that the
emergency may or is impacting on that jurisdiction and that the warning issued has cross-border
coverage. If early notification is not possible information about the warning should be passed on
as soon as practical.
Work locally; inform centrally. If an agency is working in conjunction with a similar agency of
another jurisdiction, local advice should be given that a warning is about to be issued. The User
is responsible for informing other State and Territory emergency operations centres when the use
of EA may be close to or cross jurisdictional borders. The User must also inform the IC.
3.12
Campaign Completion
The QFES Media unit will issue information to the media to advise when the threat has eased or
ended.
15
Queensland Emergency Alert Guidelines V2.0
The agency responsible for issuing the initial messages (Control Agency) may issue a final message
through the most appropriate methods, balancing the advantages of telling people the same way
verses the disadvantage if evacuation advice was given. Where possible, QFES Media will consult
with the IC to assist with the most appropriate wording.
Agencies are required to monitor the effectiveness of the warnings and ensure the community
reaction and response is obtained and captured.
3.13
Evidence Based Improvements
All agencies are responsible for conducting debriefs and capturing feedback and improvements on
their respective experiences of the EA process and the community response. These findings should
be provided to relevant regional QFES Emergency Management staff so that lessons identified can
be reported and implemented.
16
Queensland Emergency Alert Guidelines V2.0
ABBREVIATIONS
ACMA
AO
CAP
CEO
C’th
DDC
DDMG
EA
EMP
GIS
IC
ISM
IPND
LBNS
LDC
LDMG
MOE
QFES
SDCC
SEWS
SOC
SMS
Australian Communications and Media Authority
Authorising Officer
Common Alerting Protocol
Chief Executive Officer
Commonwealth
District Disaster Coordinator
District Disaster Management Group
Emergency Alert
Emergency Management Person
Geographic Information System
Incident Controller
Information Security Manual
Integrated Public Number Database
Location Based Number Store
Local Disaster Coordinator
Local Disaster Management Group
Managed Operating Environment
Queensland Fire and Emergency Services
State Disaster Coordination Centre
Standard Emergency Warning Signal
State Operations Centre
Short Message Service
17
Queensland Emergency Alert Guidelines V2.0
GLOSSARY
Authorising Officer
Campaign
Campaign Area
Campaign Target
List
CAP
Emergency Alert
EMP
Incident Controller
IPND
LBNS
The Authorising Officer is a senior Officer, who has the authority to approve the
release of an EA Campaign. Their responsibility includes evaluating the urgency
and the consequences of issuing an EA.
A Campaign is a single approved message sent to telephone numbers in
response to an event.
A Campaign Area is the geographical area approved by an AO to where
Campaigns will be sent.
A Campaign Target List is the telephone numbers provided by the Location
Based Number Store to which a Campaign is intended to be sent.
The Common Alerting Protocol provides a digital message format for all types of
alerts and notifications and can be used for EA messages.
The Emergency Alert is a national telephone warning system that provides
Australian emergency authorities with an enhanced ability to warn the
community in the event of an emergency. The warning system is another tool
available for organisations to issue emergency warnings. EAs will be issued via
landline and mobile telephones.
The Emergency Management Person has the authority to delegate access to
the LBNS to classes of person. An EMP is appointed by the Australian
Government Attorney-General under the Commonwealth Telecommunications
Act 1997.
In the context of EA, the Incident Controller is the person responsible for
requesting an EA, clearly defining the Campaign Area and being responsible for
ensuring consequence management arrangements are in place.
The Integrated Public Number Database is a Telstra maintained database that
contains information related to all listed and unlisted public telephone numbers
in Australia, regardless of the service provider.
The Location Based Number Store is a secure database that interfaces with the
IPND to geo-code numbers. The Australian Government has made the LBNS
available to individual States and Territories for use in EA.
A Polygon is a closed 2-dimensional shape. Valid polygons in EA must only
contain straight lines.
Polygon
SEWS
User
Polygon
Not a valid Polygon
Not a Polygon
(straight sides)
(has a curve)
(open, not closed)
The Standard Emergency Warning Signal is a distinctive audio signal that alerts
the community to the broadcast of an urgent message relating to a major
emergency or disaster. It is intended for use as an alert signal to be played on
public media such as radio, television and public address systems.
The person, who defines the Campaign Area to receive the EA based on
information provided by the IC, composes the message and submits the
Campaign.
18
Queensland Emergency Alert Guidelines V2.0
APPENDIX 1: QUEENSLAND LEGISLATIVE OBLIGATIONS2
Legal Obligation or Advice
Section where
this is referred
Responsibility, and for Consequences
Queensland accepts that it is fully and solely responsible for:
 its use of the IPND and LBNS data, and the consequences of that use;
 ensuring that it is able to issue emergency warnings by such means
(including non-telephony means), as it requires, notwithstanding any
fault, error, defect or unavailability of the IPND or LBNS data; and
 all acts and omissions in relation to any emergency warning it issues, or
should have issued.
Use
Queensland acknowledges that it must only use the LBNS, and only request
use and disclose LBNS data:
 for a purpose connected with persons being alerted to an emergency or
a likely emergency; and
 for the purpose of reasonable testing of whether, in the event of an
emergency occurring, persons would be able to be alerted to that
emergency.
Selling of Data
Queensland must not sell the LBNS data to any third party.
Timeliness
Agencies should be mindful of the criticality of a timely warning.
Identification of Responsible Individuals
Queensland must clearly define and articulate those individuals and/or
positions responsible for the authorisation of the warning release.
Security
Queensland must take reasonable steps to:
 prevent and detect unauthorised access to and use of the LBNS; and
 prevent the IPND and LBNS data being used for any purpose other than
a permitted purpose.
 ensure that adequate security measures are in place to prevent any
disclosure (inadvertently or otherwise) of any LBNS data in a manner
that could result in the user jurisdiction breaching the Deed Poll
Agreement or the Telecommunications Act 1997 (C’th).
Responsible Individuals to Sign
Before supplying or disclosing LBNS data to a third party agent acting for
Queensland on a commercial fee for service basis or contractor engaged by
Queensland from time to time in relation to the operation of EA, Queensland
must obtain a legally enforceable undertaking from that agent or contractor
in favour of both the Commonwealth and Queensland:
 not to access or use the LBNS, or access, use or disclose the LBNS
data for any purpose other than the permitted purposes;
 to destroy the LBNS data:
when it is no longer required for the permitted purposes;
when this agreement expires or is terminated; or
when required to do so by the user jurisdiction.
(For example: This may occur occasionally when an investigation or enquiry
is required).
2 Telecommunications Act 1997 and Australia’s Emergency Warning Arrangements
19
Section 2.1
Agency
Procedures
Section 2.1
Section 2.1
Sections 3.1
Sections 2.5
Section 2.2
Sections 2.2
Queensland Emergency Alert Guidelines V2.0
For Official Use Only Material
Queensland must comply with relevant principles in the Australian
Government Information Security Manual (ISM) that apply to the transfer of
For Official Use Only data across UNCLASSIFIED networks.
Engagement with Other Jurisdictions
Queensland is responsible for engaging with other impacted jurisdiction/s to
discuss cross-border issues and warning requirements for emergencies
impacting on multiple jurisdictions.
Decision-making
In addition, jurisdictions must also have in place clear decision making
processes to ensure that accurate, timely and relevant warnings are issued.
Section 2.1
Section 3.11
Section 3.2
Each hazard has its own set of triggers and it is the responsibility of the
relevant authorising/decision making agency to undertake a dynamic risk
assessment process, and make a decision on the requirement to
disseminate a warning in the format of EA.
The decision to utilise the telephony system will be the responsibility of the
respective agencies and will be defined by the emergency; and operational
and warning requirements.
Reliance
It is also essential that agencies do not rely solely on telephony based
warnings to inform the community of an emergency. Depending on the level
of network congestion, it may take some time for the message to reach the
intended target. EA is just one of a suite of methods to alert the community.
Principles for Communication
Warnings should reflect the principles outlined in the Commonwealth policy
paper Emergency Warnings – Choosing Your Words (2008).
Pre-planned Messages
Jurisdictions are encouraged to have pre-planned message templates to
assist in the timely development and dissemination of warnings to the
community.
Effects on the Telecommunications Network
Queensland must take reasonable steps to ensure that the use of the LBNS
and LBNS data does not adversely affect the operation of a
telecommunications network.
Consequence Management
Agencies responsible for issuing warnings must ensure that consideration is
given to the consequences of the warnings.
Section 2.3
Section 3.6
Section 3.3
Appendix 3
Section 3.12
Section 3.10
Activities to manage the consequences of the warning should be performed
prior to and/or concurrent to the message being disseminated to the
community.
Monitoring
Agencies need to monitor, in real time, the effectiveness of the warnings.
This involves monitoring the effectiveness of the warning medium utilised as
well as monitoring the community response to the warning.
Records of Use
Queensland will maintain accurate records of all decision-making activities
and processes, messages disseminated and associated costs.
20
Section 3.12
Section 2.4
Queensland Emergency Alert Guidelines V2.0
Notification of Breaches
Queensland must promptly notify the Commonwealth with full details if its
obligation under this Deed is breached (or suspected to have been
breached) by any person.
Training and Awareness
Jurisdictional and agency protocols are to contain sufficient information and
appropriate training to ensure that agencies are aware of system capacity
and capability.
Jurisdictions need to undertake appropriate training and familiarisation
activities to ensure they understand the telephony system and its
capabilities. Telstra will provide jurisdictions with a User-guide on how to
access and utilise the system.
21
Section 2.10
Section 2.6
Queensland Emergency Alert Guidelines
APPENDIX 2: EMERGENCY ALERT GUIDING PRINCIPLES
Prompts for Incident Coordinators and
Authorising Officers
EA Guiding Principles
Coordinated
Consistent & Standard-based
Multi-modal

Have checks been done with other warning
agencies to avoid duplication?

Have call centres been briefed?

Have other consequence management issues been
addressed?

Have other agencies (Local Disaster management
Group (LDMG), District Disaster Management
Group (DDMG), QPS etc.) been informed?

Are the messages consistent across different
sources available to the general public?

Are messages disseminated using a variety of
delivery mechanisms, and do they complement
each other to produce a complete picture?

Do the messages contain all relevant pertinent
details?

Are the messages presented in a way that is easily
and quickly understood?

Are messages ONLY targeted to those
communities at risk?
Targeted

(Avoid public complacency and over-warning)
Compliant with Relevant
Legislation
Accountable
Complete
Interoperable

Are messages compliant with relevant
commonwealth and jurisdictional legislation and
policy?

Has an authorised person approved the message
for dissemination?

Have you maintained a record of the message
approval and delivery process?

Has www.disaster.qld.gov.au been updated by
QFES Media?

Have you considered the delivery of messages for
operations that cross jurisdictional borders?
22
APPENDIX 3: TEMPLATE MESSAGES FOR VARIOUS HAZARDS
Severe Weather Events
Message Type
Cyclone
Severity
Warning
Cyclone
Watch
and Act
Cyclone
Advice
Storm Tide
Warning
Storm Tide
Watch
and Act
Storm Tide
Advice
Voice Message
Emergency. Emergency This is a Cyclone Warning from Queensland Fire and
Emergency Services. The area //DIRECTIONANDAREA// is likely to be affected by
Tropical Cyclone //NAME//. Very destructive winds are likely in //NUMBER// hours OR
from //TIME// You should warn neighbours secure belongings and seek safe shelter.
For more information listen to local radio or visit www dot disaster dot q l d dot gov dot
au. For cyclone damage assistance contact the State Emergency Service on 1 3 2
500
This is a Cyclone Watch and Act message from Queensland Fire and Emergency
Services. The area //DIRECTIONANDAREA// is likely to be affected by Tropical
Cyclone //NAME//. Destructive winds are likely in //NUMBER// hours OR from
//TIME//. You should warn neighbours, secure belongings and seek safe shelter. For
more information listen to local radio, or visit www dot disaster dot q l d dot gov dot au.
For cyclone damage assistance contact the State Emergency Service on 1 3 2 500
This is a Cyclone Advice from the Queensland Fire and Emergency Services. The
area //DIRECTIONANDAREA// may be affected by Tropical Cyclone //NAME//.
Destructive winds are likely in //NUMBER// hours OR from //TIME//. You should warn
neighbours, secure belongings and seek safe shelter. For more information listen to
local radio, or visit w w w dot disaster dot q l d dot gov dot a u. For cyclone damage
assistance contact the State Emergency Service on 1 3 2 500
Emergency Emergency. This is a Storm Tide Warning from the Queensland Fire and
Emergency Services. The area //DIRECTIONANDAREA// is likely to be affected by a
very dangerous Storm Tide caused by Cyclone //NAME// in //NUMBER// hours-OR at
//TIMEandDAY//. You should warn neighbours, secure belongings and seek safe
shelter. For more information listen to local radio, or visit w w w dot disaster dot q l d
dot gov dot a u
This is a Storm Tide Watch and Act message from the Queensland Fire and
Emergency Services. The area //DIRECTIONANDAREA// is likely to be affected by a
very dangerous Storm Tide caused by Cyclone //NAME// in //NUMBER// hours-OR at
//TIMEandDAY//. You should warn neighbours, secure belongings and seek safe
shelter. For more information listen to local radio, or visit w w w dot disaster dot q l d
dot gov dot a u
This is a Storm Tide Advice from the Queensland Fire and Emergency Services. The
area //DIRECTIONANDAREA// may be affected by a dangerous Storm Tide caused
by Cyclone //NAME// in //NUMBER// hours-OR at //TIMEandDAY//. You should warn
neighbours, secure belongings and seek safe shelter. For more information listen to
local radio, or visit w w w dot disaster dot q l d dot gov dot a u
Text Message
Cyclone Warning-//DIRECTIONANDAREA//Destructive wind likely in //xx// hours OR at
//TIME//-Warn others.Seek shelter-Radio or
www.disaster.qld.gov.au for info
Cyclone Watch & Act message - Destructive
wind likely in //xx// hours OR at //TIME//-Warn
others. Seek shelter-Radio or
www.disaster.qld.gov.au for info
Cyclone Advice - Destructive wind possible in
//xx// hours OR at //TIME//-Warn others. Seek
shelter-Radio or www.disaster.qld.gov.au for
info
Storm Tide Warning//DIRECTIONANDAREA//-Dangerous Storm
Tide likely in //xx// hours-OR at //TIME//-Seek
shelter-for info use radio or
www.disaster.qld.gov.au
Storm Tide Watch&Act message//DIRECTIONANDAREA//-Dangerous Storm
Tide likely in //xx// hours-OR at //TIME//-Seek
shelter-check radio or
www.disaster.qld.gov.au
Storm Tide Advice//DIRECTIONANDAREA//-Dangerous Storm
Tide possible in //xx// hours-OR at //TIME//Seek shelter-for info use radio or
www.disaster.qld.gov.au
23
Queensland Emergency Alert Guidelines
Message Type
Flood
Severity
Warning
Flood
Watch
and Act
Flood
Advice
Flash Flood
Warning
Flash Flood
Flash Flood
Watch
and Act
Advice
Voice Message
Emergency Emergency. This is a Flood Warning from the Queensland Fire and
Emergency Services. The //NAME// River affecting //PLACEPLACE// is expected to
peak causing major flooding at //TIME//. Properties in this area are likely to experience
//EXTERNAL/INTERNAL// flooding. You should warn neighbours, secure your
belongings and move to higher ground now. For more information listen to local radio,
or visit w w w dot disaster dot q l d dot gov dot a u. For flood assistance contact the
State Emergency Service on 1 3 2 500 Service on 1 3 2 500
This is a Flood Watch and Act message from the Queensland Fire and Emergency
Services. The //NAME// River affecting //PLACEPLACE// is expected to peak causing
major flooding in //xx// hours. Properties in this area are likely to experience
//EXTERNAL/INTERNAL// flooding. You should warn neighbours, secure your
belongings and move to higher ground now. For more information listen to local radio,
or visit w w w dot disaster dot q l d dot gov dot a u. For flood assistance contact the
State Emergency Service on 1 3 2 500
This is a Flood Advice from the Queensland Fire and Emergency Services. The
//NAME// River affecting //PLACEPLACE// is expected to peak causing major flooding
in //xx// hours. Properties in this area are may experience //EXTERNAL/INTERNAL//
flooding. You should warn neighbours, secure your belongings and move to higher
ground now. For more information listen to local radio, or visit w w w dot disaster dot q
l d dot gov dot a u. For flood assistance contact the State Emergency Service on 1 3 2
500
Emergency Emergency. This is a Flash Flood Warning from the Queensland Fire and
Emergency Services. Areas in the //PLACE// are likely to experience rapidly rising
water levels and property inundation over the next //xx// hours, posing an immediate
danger to residents. You should warn neighbours, secure your belongings and move
to higher ground now. For more information listen to local radio. For flood assistance
contact the State Emergency Services on 1 3 2 500
This is a Flash Flood Watch and Act message from the Queensland Fire and
Emergency Services. Areas in the //PLACE// are likely to experience rapidly rising
water levels and property inundation over the next //xx// hours, posing a danger to
residents. You should warn neighbours, secure your belongings and move to higher
ground now. For more information listen to local radio. For flood assistance contact
the State Emergency Services on 1 3 2 500
This is a Flash Flood Advice from the Queensland Fire and Emergency Services.
Areas in the //PLACE// are likely to experience rapidly rising water levels and possible
property inundation over the next //xx// hours, posing a possible danger to residents.
You should warn neighbours, secure your belongings and move to higher ground
now. For more information listen to local radio. For flood assistance contact the State
Emergency Services on 1 3 2 500
Text Message
Flood Warning from QFES for //NAME// River
affecting //PLACEPLACE//-Major Flood at
//TIME//-Warn others-Leave area NOW or
seek higher ground-Listen to radio
Flood Watch&Act message from QFES for
//NAME// River affecting //PLACEPLACE//Flood at //TIME//-Warn others-Leave area
NOW or seek higher ground-Listen to radio
Flood Advice from QFES for //NAME// River
affecting //PLACEPLACE//-Major Flood about
//TIME//-Warn others-Leave area NOW or
seek higher ground-Listen to radio
Flash Flood Warning from QFES for
//PLACE//-immediate threat to life/propertyWarn others-Leave area/prepare NOW or
seek higher ground-Listen to radio
Flash Flood Watch & Act message from
QFES for //PLACE//-possible threat to
life/property-Warn others-Leave area/prepare
NOW or seek higher ground-Listen to radio
Flash Flood Advice from QFES for //PLACE//possible threat to life/property-Warn othersLeave area/prepare NOW or seek higher
ground-Listen to radio
24
Queensland Emergency Alert Guidelines
Message Type
Tsunami
Severity
Warning
Tsunami
Watch
and Act
Tsunami
Advice
All Purpose
Warning
All Purpose
Watch
and Act
Advice
All Purpose
Voice Message
Emergency Emergency. This is a Tsunami Warning from the Queensland Fire and
Emergency Services. Areas between //PLACE// are forecast to experience dangerous
and destructive waves around //TIME//. You should warn neighbours, move to higher
ground immediately, at least ten metres above sea level, or if possible move at least
one kilometre away from all beaches and the waters edge of harbors and coastal
estuaries. For more information listen to local radio, or visit w w w dot disaster dot q l
d dot gov dot a u
This is a Tsunami Watch and Act message from the Queensland Fire and Emergency
Services. Areas between //PLACE// are forecast to experience dangerous and
destructive waves around //TIME//. You should warn neighbours, move to higher
ground immediately, at least ten metres above sea level, or if possible move at least
one kilometre away from all beaches and the waters edge of harbors and coastal
estuaries. For more information listen to local radio, or visit w w w dot disaster dot q l
d dot gov dot a u
This is a Tsunami Advice from the Queensland Fire and Emergency Services. Areas
between //PLACE// may experience dangerous and destructive waves around
//TIME//. You should warn neighbours, move to higher ground immediately, at least
ten metres above sea level, or if possible move at least one kilometre away from all
beaches and the waters edge of harbors and coastal estuaries. For more information
listen to local radio, or visit w w w dot disaster dot q l d dot gov dot a u
Emergency Emergency For more information listen to local radio, or visit w w w dot
disaster dot q l d dot gov dot a u
For more information listen to local radio, or visit w w w dot disaster dot q l d dot gov
dot a u
For more information listen to local radio, or visit w w w dot disaster dot q l d dot gov
dot a u
Text Message
Tsunami Warning from QFES for
//PLACEPLACE//-expect destructive waves
at //TIME//-Warn others-Seek higher ground
NOW-Listen to local radio
Tsunami Watch & Act message from QFES
for //PLACEPLACE//-expect destructive
waves at //TIME//-Warn others-Seek higher
ground NOW-Listen to local radio
Tsunami Advice from QFES for
//PLACEPLACE//-possible destructive waves
at //TIME//-Warn others-Seek higher ground
NOW-Listen to local radio
for info use radio or www.disaster.qld.gov.au
Listen to local radio
Listen to local radio
25
Queensland Emergency Alert Guidelines
Fire and Hazardous Material
Message
Type
Bushfire
Severity
Warning
Bushfire
Watch
and Act
Bushfire
Advice
Chemical
Spill
Warning
Chemical
Spill
Watch
and Act
Chemical
Spill
Advice
Smoke or
Toxic
Chemical
Plume
Warning
Voice Message
Emergency. Emergency. This is a Bush Fire Emergency Warning from the Queensland
Fire and Emergency Services. A Bush Fire is located at //PLACE// and is expected to
impact the areas of //SUBURBS// around //TIME// Residents are strongly advised to seek
shelter or leave now if able to. For further information listen to local radio or go to w w w
dot disaster dot q l d dot gov dot a u
This is a Bush Fire Watch and Act message from the Queensland Fire and Emergency
Services. A Bush Fire is located at //PLACE//. The fire is expected to impact //SUBURBS//
around //TIME//. Residents are advised to prepare their property or relocate to a safer area
if able. For further information listen to your local radio or go to w w w dot disaster dot q l d
dot gov dot au
This is a Bush Fire Advisory message from the Queensland Fire and Emergency Services.
A possible Bush Fire threat is located at //PLACE//. Residents are advised to be aware,
stay informed and prepare their property. For further information listen to your local radio or
go to w w w dot disaster dot q l d dot gov dot a u
Emergency. Emergency. This is a Chemical Spill Emergency Warning from the
Queensland Fire and Emergency Services. A Chemical Incident is located at //PLACE//
and is expected to impact the areas of //SUBURBS// for the next //TIME//. Residents are
strongly advised to shelter indoors, close windows and doors and turn off air conditioning.
For further information listen to local radio or go to w w w dot disaster dot q l d dot gov dot
au
This is a Chemical Spill Watch and Act message from the Queensland Fire and
Emergency Services. A chemical incident is located at //PLACE// and is expected to impact
//SUBURBS// for the next //TIME// minutes. Residents are advised to stay informed and
prepare to relocate to a safer area if instructed. For further information listen to your local
radio or go to w w w dot disaster dot q l d dot gov dot a u
This is a Chemical Spill Advice message from the Queensland Fire and Emergency
Services. A chemical incident is located at //PLACE// and is expected to impact
//SUBURBS// for the next //TIME// minutes. Residents are advised to stay informed. For
further information listen to your local radio or go to w w w dot disaster dot q l d dot gov dot
au
Emergency. Emergency. This is a Smoke Plume Emergency Warning from the
Queensland Fire and Emergency Services. A chemical incident is located at //PLACE// and
is expected to impact the areas of //SUBURBS// for the next //TIME//. Residents are
strongly advised to shelter indoors, close windows and doors and turn off airconditioning.
For further information listen to local radio or go to w w w dot disaster dot q l d dot gov dot
au
Text Message
Bushfire Emergency Warning from QFES//PLACE//-You are strongly advised to seek
shelter or leave NOW if able to-Check radio or
www.disaster.qld.gov.au
Bushfire Watch & Act Message from QFES//PLACE//-Prepare property or relocate to safer
area-Check radio or www.disaster.qld.gov.au
Bushfire Advisory Message from QFES for
//PLACE// and surrounding areas-Stay
informed-Check radio or
www.disaster.qld.gov.au
Chemical Spill Emergency Warning from
QFES-//PLACE//-Avoid area-Shelter indoorsClose windows doors-Shut off aircon-Check
radio or www.disaster.qld.gov.au
Chemical Spill Watch & Act Message from
QFES-//PLACE//-Stay informed and prepare for
evacuation. Check radio or
www.disaster.qld.gov.au
Chemical Spill Advice from QFES-//PLACE//Stay informed-Check radio or
www.disaster.qld.gov.au
Smoke Plume Emergency Warning from
QFES-//PLACE//-Shelter indoors-Close
windows doors-Shut off aircon-Check radio or
www.disaster.qld.gov.au
26
Queensland Emergency Alert Guidelines
Message
Type
Smoke or
Toxic
Chemical
Plume
Severity
Watch
and Act
Smoke or
Toxic
Chemical
Plume
Advice
Fire
Incident
Warning
Fire
Incident
Watch
and Act
Fire
Incident
Advice
Voice Message
Text Message
This is a Smoke Plume Watch and Act message from the Queensland Fire and Emergency
Services. A Chemical incident is located at //PLACE// and a smoke plume is expected to
impact //SUBURBS// for the next //TIME// minutes. Residents are advised to stay informed
and prepare for relocation to a safer area if instructed. For further information listen to your
local radio or go to w w w dot disaster dot q l d dot gov dot a u
This is a Smoke Plume Advice message from the Queensland Fire and Emergency
Services. A chemical incident is located at //PLACE// and a smoke plume is expected to
impact //SUBURBS// for the next //TIME// minutes. Residents are advised to stay informed.
For further information listen to your local radio or go to w w w dot disaster dot q l d dot gov
dot a u
Emergency. Emergency. This is a //FireIncident// Emergency Warning from the
Queensland Fire and Emergency Services. A //FireIncident1// is located at //PLACE// and
is expected to impact the areas of //SUBURBS// for the next //TIME//. Residents are
strongly advised to shelter indoors, close windows and doors and turn off airconditioning.
For further information listen to local radio or go to w w w dot disaster dot q l d dot gov dot
au
This is a //FireIncident// Watch and Act message from the Queensland Fire and
Emergency Services. A //FireIncident1// is located at //PLACE// and is expected to impact
//SUBURBS// for the next //TIME// minutes. Residents are advised to stay informed and
prepare for relocation to a safer area if instructed. For further information listen to your
local radio or go to w w w dot disaster dot q l d dot gov dot a u
This is a //FireIncident// Advice message from the Queensland Fire and Emergency
Services. A //FireIncident1// is located at //PLACE// is expected to impact //SUBURBS// for
the next //TIME// minutes. Residents are advised to stay informed. For further information
listen to your local radio or go to w w w dot disaster dot q l d dot gov dot a u
Smoke Plume Watch & Act Message from
QFES-//PLACE//-Stay informed and prepare for
evacuation. Check radio or
www.disaster.qld.gov.au
Smoke Plume Advice from QFES-//PLACE//Stay informed-Check radio or
www.disaster.qld.gov.au
//FireIncident// Emergency Warning from
QFES-//PLACE//-Shelter indoors-Close
windows doors-Shut off aircon-Check radio or
www.disaster.qld.gov.au
//FireIncident// Watch & Act Message from
QFES-//PLACE//-Stay informed and prepare for
evacuation. Check radio or
www.disaster.qld.gov.au
//FireIncident// Advice from QFES-//PLACE//Stay informed-Check radio or
www.disaster.qld.gov.au
27
Queensland Emergency Alert Guidelines
Appendix 4: Technical Preparation
Detailed below are some technical aspects and considerations relating to the EA system and
campaign creation.
To achieve optimal performance, Telstra recommends across all jurisdictions:
 No more than 40 Users access EA at the same time;
 No more than 10 Users from a jurisdiction access EA simultaneously;
 No more than 8 concurrent Campaigns are conducted (where each Campaign has no more
than 50,000 fixed line Campaign messages); and
 A LBNS query that returns over 500,000 services will fail. The User will need to reduce the
polygon size and should inform the IC that multiple Campaigns will be required.
Other factors that will affect performance that should be considered by Users and their AOs
include:
 The number of Campaigns that are initiated and running at any one time;
 The number of Users or Jurisdictional Administrators logged on the EA system;
 The volume and number of fixed line and mobile services that will be sent a Campaign
message;
 The complexity of GIS Shapes that are defined and confirmed by AOs;
 The number of LBNS queries which are performed (note: each time a polygon is confirmed,
a query to LBNS is performed);
 The number and size of reports that are being requested from the EA Application;
 The amount of any photographic/satellite views that are used in the maps;
 The frequency at which Users zoom in and out of maps;
 The length of the message to be sent to fixed line services;
 The length of the SMS message to be sent to mobile services i.e. a maximum of 160
characters;
 The Campaign Validity Time;
 The time taken to authorise a Campaign;
 The number of times a User utilises the speech translation preview function and time it takes
to validate that message;
 The priority assigned to each Campaign, as a Warning message will have a higher priority
than other message types regardless of which jurisdiction released it;
 Whether messages are to be delivered to fixed line services, mobile services or both;
 The number of fixed line congestion events detected during a Campaign;
 Whether there is extremely high use of the SMS network by the general public at certain key
times and dates (for example, around midnight on New Year’s Eve, Christmas Day, Mother’s
Day and where there are major events being held in a particular location);
 The likelihood of a Campaign Area experiencing high usage of the network due to an existing
emergency, event or incident, which will be exacerbated by the sending of EA messages;
 Complex maps take longer for the User to replicate in EA and due to the higher number of
vertices in the polygon it may have a detrimental effect on EA, particularly if multiple
Campaigns are running. There is also a risk that the polygon may not exactly mirror the
original map;
 In areas where there is poor mobile coverage and a power failure occurs, warning messages
can only be received by people with access to a landline phone with a cord i.e. not a
cordless phone nor a combined phone/fax machine;
 Voice over Internet Protocol (VoIP) phones may not receive an EA, as the service address
that is registered in the IPND may be the VoIP service provider’s address and not the
customer’s address; and
 Telstra has no control over the performance of other carrier’s networks.
28
Other considerations:
 When multiple Campaigns are released and target areas overlap, the same resident may
receive duplicated or slightly different messages;
 If SMS is based on the service address, visitors and others who have their billing address
outside the target area will not receive the message;
 The IC must be notified if the message content is changed from that requested;
 Resources must be available to answer phone enquiries from concerned residents and to
staff any Evacuation Centres identified in the message; and
 Close cooperation is required with local media.
29
APPENDIX 5: EMERGENCY ALERT REQUEST FORM
c
Date
Time
Incident/Event:
EMERGENCY ALERT
REQUEST
Requesting Officer:
Contact Details: (name, contact number and email address, position. Local Government)
March 2015
Event Type
Prepared By:
Position:
Cyclone
Flash Flood
Flood
Storm Surge
Tsunami*
Bushfire
Chemical Spill
Fire Incident
Smoke or Toxic Plume
Other (please specify):
*NB. Tsunami EA campaigns will be sent as Location Based Text Message ONLY
Message Severity
Emergency Warning**
Watch & Act
Advice
**N.B. activates the SEWS
SMS – Location Based
SMS – Service Address Based
Campaign Mode
Voice
LDMG Advised?
YES
NO
Threat Direction Required?
YES
NO Note: Can only be used for Emergency Warnings.
1. EA Polygon Area:
DDC Advised?
YES
NO
Indicate direction on map
Map attached
2. Spatial format:
ESRI
Use only these file
extensions:
Indicate the format used: For spatial data, is it
supplied via
*.dbf, *.prj, *.shp, *.shx
GML
DMportal - specify
filenames below
*.gml, *.xsd
KML
MapInfo TAB
MapInfo Mid/Mif
FTP - specify filenames
below
*.kml
*.dat, *.id, *.map, *.tab
Filename:
*.MIDI Sequence, *.mif
Email
Other (please specify)
3. Handwrite (please use capitals for clarity) or Type Voice message (Ideally message should be less than 450
characters).
4. Type or handwrite SMS below (maximum of 160 characters including spaces)
For use by SDCC
Authorising Officer Name:
EA User Name:
Manual Transmission:
EMS Transmission:
EMS Report ID:
___________
EA Guidelines and the Emergency Alert Request Form Template are available at: www.disaster.qld.gov.au
30
DO NOT SEND THIS PAGE
STEPS TO COMPLETE FIELDS 1 - 4
1.
EA Polygon Area (e.g. detailed description and location reference to allow positive
identification of message area, including street names with cross street, areas of interest
such as parks, rivers, dams, coastal areas) it is preferable to attach a map identifying the
message area. If a Threat Direction has been requested, please clearly indicate it on the
map.
2.
Tick applicable box and note the file name.
3.
Voice Message Handwrite or type the required message. As the message will be
translated by a Text To Speech process it is important that words are not unintelligible
when translated e.g. “qld” used in a web site address must be entered as “q l d”, similarly
the word “dot” must be entered into a web address instead of a full stop.
Voice Message ideally should have no more than 450 characters including spaces. Do
not use special characters – refer to EA Operational Guidelines for details. Warning
message must start with “Emergency Emergency”
Example Voice: Emergency, Emergency. This is a Flash Flood Warning from the State
Emergency Services. Areas in the Opal Valley are likely to experience rapidly rising water
levels and property inundation over the next 2 hours, posing an immediate danger to
residents. You should warn neighbours, secure your belongings and move to higher
ground now. For more information listen to local radio. For flood assistance contact the
State Emergency Services on 1 3 2 500
4.
SMS Is restricted to a maximum of 160 characters including spaces and punctuation.
Either type the message or handwrite the characters into the boxes.
Example SMS Flash Flood Warning from SES for Opal Valley-immediate threat to
life/property-Warn others-Leave area/prepare NOW or seek higher ground-Listen to local
radio
If using existing EA templates, please provide the appropriate variables that are in the
template. Refer to the Queensland Emergency Alert Guidelines for copies of the templates.
//DIRECTIONANDAREA//
//NAME//
//NUMBER//
//TIME//
//TIMEandDAY//
//DIRECTIONandPLACE//
//HOURSMINUTES//
//PLACE//
//PLACEPLACE//
//EXTERNAL/INTERNAL//
//SUBURBS//
//FireIncident//
31
APPENDIX 6: Guidelines for using Predefined GIS Polygons
Emergency Alert (EA) has the ability to import spatial data that defines a particular geographic
area, known as a Campaign Area to send EA notifications to. For agencies such as local
governments seeking to send EA notifications, Queensland Fire and Emergency Services
(QFES) would prefer that spatial extents are defined by the agency to ensure notifications are
sent to appropriate communities at risk and to reduce time in preparing campaign areas.
This document outlines to agencies the format that spatial data is to be provided to QFES.
Some Local Governments have prepared risk assessments and risk registers identifying
potential known hazards such as a tsunami, riverine and flash flood or other critical events. Local
Governments are responsible for storing the spatial extents and maintaining its currency in
readiness for any potential future event but it can be quickly and easily emailed to QFES when
an EA is required.
The Emergency Alert Queensland Operational Guidelines are to be strictly followed when
requesting an EA Campaign. The guidelines containing the EA Request Form are available at
www.disaster.qld.gov.au.
Spatial Format
EA has strict limitations for importing spatial data of predefined extents. To ensure accurate and
timely alerts, spatial data must be provided to QFES in one of the following formats with all the
required file extensions:
GIS Format
ESRI
GML
KML (preferred option)
MapInfo TAB
MapInfo Mid/Mif








Required File Extensions
*.dbf, *.prj, *.shp, *.shx
*.gml, *.xsd
*.kml
*.MIDI Sequence, *.mif
*.dat, *.id, *.map, *.tab
KML files are the preferred format and can easily be created by most GIS products
Shape file to be supplied in geographics coordinate system using GDA94 datum (see
projection definition on page 33)
ESRI shape files must be created in a Geodatabase
Polygons are to be simple i.e. no donuts and no multipart shapes are to be provided
No spaces or special characters in the shape file name
No additional file extensions to those listed above, e.g. .sbn which contains the spatial index
format
No circular shape files unless it only covers a very small area
Polygon names should follow the file naming conventions on page 34
The pink area on the left depicts a
simple polygon.
32
Polygons that have many vertices can slow
the EA system. It is recommended to keep
them as simple as possible (preferably
under 15 vertices). However, there may
be cases such as when modelling a
flooded river that more complex shapes
are required. Generally, these polygons
are usually acceptable unless it covers a
substantial quantity of high density
dwellings such as high rise apartments.
The pink polygon on the left covers part of
the Brisbane River. The EA system has
identified less than 16,000 fixed lines and
about 6,500 mobiles within the polygon.
Projection Definition
When setting the projection as GDA94 please ensure that it is not also incorporated in the zone.
The Projection definition should be in accordance with the information detailed at
http://spatialreference.org/ref/epsg/4283/
To change the projection to GDA94 (without the zone) in MapInfo:
 From the MapInfo menu bar choose Map > Options > Projection
 Choose 'Longitude / Latitude' in the 'Category' box
 Choose 'Longitude / Latitude (Australia GDA94)' in the 'Category Members' box
Campaign Considerations
When agencies are predefining extents the following considerations should be followed to
ensure the timely notification of alerts.
 Limit the number of notifications for each extent to around 50,000 notifications (i.e. estimated
number of land lines in the campaign area). For large populated areas it is suggested to
have a number of smaller campaigns around 50,000 maximum notifications rather than one
large campaign. QFES will provide advice to the agencies if numbers are excessive
 When defining extents consider priority areas especially in highly populated areas. For
example agencies may wish to define separate extents for communities which will be first
affected by the hazard and separate extents for ones that will be affected at a later time
 Do not extend campaign areas a long way out into open water as this can slow the campaign
down as the EA system searches for phone numbers in the campaign area.
Converting to KML Format
EA does not support multiple shapes so please ensure KML files are only a single polygon.
Logan City Council advised that to convert a MapInfo tab file to a KML file, they use the FME
Workbench from FME Desktop 2011 SP1 (Build 6517) software using the following options:
 When specifying which file format to use (when adding a 'reader') use the "MITAB" option.
 Select the "LL-GDA-94" option in the "Coord. System" box.
 When specifying the 'writer', select the "LL-GDA-94" option again in the "Coord. System" box
and select the "Dynamic Schema" option under the "Workflow Options".
There are also a number of file conversion tools available free of charge on the Internet.
33
File Naming Conventions
QFES recommends the data be provided using the following file naming convention.
Hazard Name_Agency_Extent Number
Where the Hazard Name reflects the type of event, such as a Tsunami
Where the Agency reflects, the requesting agency’s name but it does not have to be fully spelt
out.
Where the extent number is a unique identifier, such as _04
Example of a KML file
Example of ESRI files
Data Integrity
Agencies are responsible for maintaining the currency of their own data and must clearly specify
the filenames on the EA Request Form.
File Size Limits
The maximum email size that can be received by QFES from an external agency is 5
megabytes. Files over this size should be sent through the File Transfer Protocol (FTP). For
details, refer to the QFES File Transfer Protocol Server User Guide, available from the SDCC
Watch Desk.
Storing GIS Files
The Disaster Management (DM) Portal https://community.emergency.qld.gov.au contains an
Emergency Alert sub web where agencies can upload their GIS files (preferably in KML format).
Word documents containing the relevant voice and SMS text can also be uploaded and the EA
Operational Guidelines provide advice on message composition and maximum character counts.
If you do not have access to the DM portal or EA sub web, please register by completing the
portal registration form at www.disaster.qld.gov.au/dmportal/register.htm
Coordinates to Create Shapes
Shapes/polygons can be created using a list of coordinates written as Well Known Text (WKT).
The coordinates are in latitude/longitude decimal degrees up to six places.
Coordinates must be in the following format only:
1. longitude
2. space
3. minus sign
4. latitude
5. comma
6. space
For example: 152.0 -27.0, 152.546789 -27.0, 152.259 -26.5, 152.0 -27.0
Note 1. The longitude is entered before the latitude.
Note 2. The last coordinate must be the same as the first one but without the final comma and
space, as this closes the shape. This results in a triangle having four coordinates instead of
three.
34