BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
The Brisbane City Council Moreton Island Sub-plan is an operational level sub-plan that sits within Brisbane City Council’s Local Disaster Management Plan, prepared under the terms of the Disaster Management Act 2003 (Queensland). It is supported by standard operating procedures (SOPs) that outline the procedures to be followed when the Moreton Island Sub-plan is activated. These SOPs are internal documents and are available on Council’s Disaster Management intranet or through the Disaster
Management Office.
This Moreton Island Sub-plan will be reviewed, practiced and updated annually in accordance with the procedures mandated by the Brisbane Local Disaster
Management Group (Brisbane LDMG). It shall be reviewed at least once each year by a committee of appropriately qualified and experienced personnel. The committee shall, as a minimum, consist of senior members of the Disaster Management Office and representatives from external agencies as needed.
1. Proposed amendments to this sub-plan are to be forwarded in writing to the Manager, Disaster Management Office (MDMO), who may approve minor amendments.
2. Proposed amendments that affect the intent of this sub-plan, roles and responsibilities or external agencies must be endorsed by the Local
Disaster Coordinator (LDC) and/or the MDMO and may be forwarded to the Brisbane LDMG for approval if required. This type of amendment is referred to as a major amendment.
3. Endorsed amendments are to be listed in the table below.
4. Version control of this sub-plan is managed by the Disaster Management
Office. Reissue of this sub-plan 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 action to ensure they are in possession of the most recent version, and that previous versions in both hard copy and electronic forms are archived accordingly. Further information can be requested by contacting the Disaster Management Office.
Moreton Island Sub-plan Version Control
Version Date
1.0 September
2012
Reviewed by Endorsed by
Craig Logan, Coordinator, Disaster management Office
Manager, Disaster
Management Office
1.1
2.0
2.1
February
2013
Craig Logan, Coordinator, Disaster
Management Office
Manager, Disaster
Management Office
May 2013
November
2013
Jason Cameron, Manager, Disaster
Management Office
Chair, Brisbane LDMG
District Disaster Officer
Aprel Dawes, Operations Officer,
Disaster Management Office
Manager, Disaster
Management Office
Comments
Initial draft prepared by
Disaster
Management
Office
Revisions following exercise debrief
2013 official version
Added details re cruise ships & updated ref to
LDMP
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
5. This sub-plan is to be reviewed:
On activation of an event requiring the use of this sub-plan
On activation of similar disaster management plans in other states, territories or overseas where considered possible
Upon annual review of Council’s Local Disaster Management Plan in accordance with the Disaster Management Act 2003 (Qld)
6. This sub-plan, together with its supporting standard operating procedures
(SOPs), is to be tested annually. The MDMO is to brief relevant stakeholders and the Brisbane LDMG on the results of testing this plan.
7. In accordance with legislation, the Brisbane Local Disaster Management
Plan and all its underpinning sub-plans will be approved by the Chair of the
Brisbane LDMG annually.
Table 1 summarises a comprehensive, but not exhaustive, list of the many interrelated documents that provide authority for this Plan.
Table 1: Moreton Island Plan reference list
A. Disaster Management Act 2003 (Qld), effective 21 May 2014 (the Act)
B. Queensland Disaster Management Planning Guidelines
C. Australian Emergency Manuals Series, Part III, Emergency Management
Practice, Volume 2 – Specific issues. Manual 1 – Evacuation Planning
D. Emergency Management Queensland, Queensland Evacuation
Guidelines for Disaster Management Groups, Version 1 August 2011
E. Public Safety Preservation Act 1986
F. Brisbane City Council Evacuation Plan 2013
G. Brisbane City Council Evacuation Standard Operating Procedure 2013
H. Emergency Response Procedure, Action Plan for Emergencies –
Queensland Parks and Wildlife Service 2011
I. Wildfire Response Plan – Queensland Parks and Wildlife Service 2011
J. Department National Parks, Recreation, Sport and Racing website: http://www.derm.qld.gov.au/parks/moreton-island/index.html
K 2013-2014 Queensland State Disaster Management Plan
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
ADMINISTRATION AND GOVERNANCE .................................................................. ii
MORETON ISLAND QUICK FACTS ............................................................... 4
HOW TO USE THIS SUB-PLAN DURING OPERATIONS .............................. 5
Tangalooma Resort specific plans .............................................................. 7
EVACUATION PROCESS .............................................................................. 8
Chain of Command / Control of agencies on Moreton Island ..................... 10
RECEPTION & RELOCATION ..................................................................... 15
APPENDIX 1 – ACRONYMS AND ABBREVIATIONS ............................................. 17
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
This Moreton Island Sub-plan is designed to be a guide for the evacuation, shelter and support services for people affected by an emergency or disaster event on
Moreton Island.
This sub-plan has been prepared for Council, the Lord Mayor, Brisbane LDMG,
Council Business Units, and key external stakeholders.
This Moreton Island Sub-plan is approved by the Brisbane LDMG under the terms and provisions of the Act .
The MDMO, on behalf of Council, is the custodian of this plan. The custodian has the responsibility for implementing, evaluating, testing, reviewing and updating this plan.
The custodian is also to ensure proper quality, security, integrity, consistency, privacy, confidentiality and accessibility of the plan.
The Custodian’s contact details are:
Title: Manager, Disaster Management Office
Contact: (07) 3403 8888
GPO Box 1434 Brisbane Qld, 4001
The purpose of evacuation is to ensure people at risk during a disaster event can be moved to a location of relative safety and provided with emergency human services, including short-term accommodation if necessary.
This plan forms a sub-plan of the Brisbane City Council Local Disaster Management
Plan, and is developed under the authority of the Act.
The Brisbane Local Disaster Coordinator (LDC), the CEO Brisbane City Council, is the Authority for this plan. The Brisbane LDC may elect to activate this plan in consultation with, or under direction from, the State or Brisbane District Disaster
Coordinators.
The Moreton Island Sub-plan will be activated by the LDC where the nature of risk to the community will require the movement of at risk persons to a safer location.
The Moreton Island stakeholders consist of the following agencies:
Brisbane City Council – Disaster Management Office (DMO)
Brisbane City Council –Compliance and Regulatory Services (CARS)
Brisbane City Council – Corporate Communications (Crisis Communications)
Brisbane City Council – Brisbane Lifestyle (BL)
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Brisbane City Council – Brisbane Transport (BT)
Brisbane City Council – Field Services Group (FSG)
Queensland Police Service – Redcliffe District Disaster Management Group
(Redcliffe DDMG)
Queensland Police Service (QPS)
Department of Communities, Child Safety and Disability Services (DCCSDS)
Department of National Parks, Recreation, Sport & Racing (DNPRSR)
(Queensland Parks & Wildlife Service – QPWS)
Red Cross
State Emergency Service (SES)
Queensland Fire and Emergency Service (QFES)
Queensland Ambulance Service (QAS)
Tangalooma Island Resort
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
This plan provides a strategic overview of the process of coordinating and tasking agencies to facilitate the evacuation of persons at risk on Moreton Island and its shoreline waters to the mainland or other safe havens within the island communities of Moreton Bay.
This plan will focus on five phases of coordination and tasking which are:
1. Preliminary
2. Withdrawal
3. Extraction
4. Reception and relocation
5. Return
Moreton Island is susceptible to various risks. For this reason an all-hazards approach will be used.
This plan will not cover evacuation centre management. See Evacuation Plan and
SOP for further details.
This plan does not cover recovery planning.
Brisbane City Council is the lead agency for this plan with support from the
Redcliffe DDMG, Queensland Police Service, Queensland Parks and Wildlife
Service and other agencies as required.
Relocation is defined as the relocation of evacuees to designated areas within the geographical boundaries of Moreton Island and its shoreline waters due to a disaster event or predicted disaster event.
Extraction is defined as the extraction of evacuees from Moreton Island and its shoreline waters to the mainland or other island communities within Moreton Bay.
A disaster event will be as defined in the Disaster Management Act (Qld) 2003.
Evacuation may be required without a declaration of a Disaster Situation.
Evacuees may include local residents, campers, day tourists and resort staff and patrons found within the geographical boundaries of Moreton Islands and its shoreline waters.
The magnitude of, and methodology for, evacuation will be determined by the impact (or potential impact) of the event.
Queensland Police Service, supported by QPWS and SES staff, will provide the resources necessary to ensure the safe passage of evacuees from their location on the Island to the muster point for extraction.
See evacuation plan for definitions relevant to evacuation.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Moreton Island is located in Moreton Bay approximately 40km from Brisbane.
Moreton Island is 37km long and 10km wide at its widest and is a wedge shaped island covering over 185 square kilometres.
It is the third largest sand island in the world and has no town services, sealed roads, electricity, town water or sewerage. Phone coverage is incomplete.
Over 98% of Moreton Island is designated National Park with a unique combination of flora and fauna. (See Moreton Island Map figure 1.)
There are 4 townships at Bulwer, Cowan Cowan, Tangalooma and Kooringal with the majority of people on the island living or staying at the Tangalooma Island Resort.
There is a permanent population of approximately 380 people. There are also approximately 8 rangers at any one time stationed at the National Parks and Wildlife base at Ben-Ewa, and one permanent QAS member currently stationed at
Tangalooma Resort.
Township numbers do increase during holiday and weekend periods by approximately 100 to 250.
There is no service station, doctor, dentist or school on the island.
There are a number of persons at risk during events, including:
visitors camping on the island with vehicles
visitors camping on the island without vehicles
residents of Moreton Island
staff and patrons of Tangalooma Resort complex
QPWS staff.
P&O Cruises has a partnership with Tangalooma Island Resort. There are approximately 12 cruises a year from Sydney to Tangalooma Island Resort (as the sole stopover)
. The “Pacific Pearl” and “Pacific Jewel” rotate on this journey.
Each cruise ship has approximately 1968 passengers and 700 crew members on board. Passenger demographics vary depending on the date and time of year.
Generally, mid-week cruises have an older demographic and weekend cruises have a younger demographic.
Cruises arrive at 5.30am in the morning and passengers disembark from 7.30am onwards.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
This sub-plan should be used to guide the conduct of the evacuation and should be used in conjunction with the Evacuation Sub-plan and SOP. This plan has been developed as an operational guide with pre-determined strategies able to be adapted to the specific circumstances of the event.
This plan is broken into 5 phases as indicated in the diagram below. These 5 phases will determine the planning considerations when evacuation is deemed necessary.
Figure 1: Stages of Evacuation
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Figure 2: Moreton Island
Source: Department of National Parks, Recreation, Sport and Racing website: http://www.derm.qld.gov.au/parks/moreton-island/pdf/moreton-isl-np-rec-area.pdf
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Risks for Moreton Island include:
Bushfire
Tsunami
Storm surge
Oil spill
Severe storm
East Coast low
Isolation
Heat wave
Economic loss/loss of tourism
Events during high season for tourism
Communications – lack of phone reception, language barrier for tourists
Risk to other islands e.g. support and resources stretched
Maritime accidents – cruise ship, ferry or barge accidents/incidents
Tangalooma Resort has a suite of plans for the resort (not for the whole of Moreton
Island). These plans include:
Emergency plans
Tsunami plan
Asset register
Risk management
Communications plan
Transport plan
Business continuity planning
Further information on these plans and the activation of these plans is through the
Tangalooma Resort Manager. (See Moreton Island SOP for contact details.)
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Evacuation may be either immediate or pre-warned.
It may involve internal evacuation on the island or external evacuation from the island.
It may be voluntary or mandatory in nature.
Voluntary evacuation will normally involve persons self-evacuating, however, some transport assistance may be required for people with disabilities, the homeless, disadvantaged and aged members of the community who do not have access to appropriate transport.
Mandatory evacuation occurs when a police officer who is authorised by relevant legislation (either the Disaster Management Act 2003 or the Public
Safety Preservation Act 1986) makes a decision to execute specific powers under that legislation and orders people to evacuate a designated area.
The decision to evacuate should take into account the following factors:
A vulnerability analysis which considers whether, for the hazard and conditions, sheltering in place may be preferable.
The potential for risk to evacuees during movement from the islands.
Available lead time.
The ability to effectively warn affected people.
The time and resources (transport and people) to carry out the evacuation.
Access and egress to/from the islands.
The availability of assembly areas.
The safety of emergency workers.
The potential numbers of evacuees involved.
The requirement to provide temporary accommodation.
Figure 3: Stages of Evacuation - Preliminary
The preliminary phase outlines the warning, set up and pre-position of response agencies.
Authority
The Brisbane Local Disaster Coordinator (LDC – CEO Brisbane City Council) is the
Authority for this procedure.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Agencies involved
Internal
Local Disaster Management Group
(LDMG) - as required
Disaster Management Office (DMO) /
Local Disaster Coordination Centre
(LDCC)
Brisbane Lifestyle (BL)
Brisbane Transport (BT)
External
Redcliffe District Disaster Management
Group (Redcliffe DDMG)
Queensland Police Service (QPS)
Field Services Group (FSG)
Department of Community Safety (DCS)
Department of Communities, Child
Safety and Disability Services (DCCSDS)
Department of National Parks,
Recreation, Sport and Racing (DNPRSR)
(Queensland Parks & Wildlife Service –
QPWS)
State Emergency Service (SES) Corporate Communications (Crisis
Communications)
Compliance and Regulatory Services
(CARS)
Australian Red Cross
Queensland Fire and Emergency
Services (QFES)
Queensland Ambulance Service (QAS)
Tangalooma Island Resort
Activation of the plan
A decision to activate the plan will be in consultation with the LDC, the Manager,
Disaster Management Office and relevant stakeholders.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Command and Control is event specific and the agency that takes the lead in an event will differ depending on the type of event. The Brisbane LDMG and the LDCC will typically play a supporting role in an event on Moreton Island.
The following table from the State Disaster Management Plan (2013-14) outlines the primary agencies responsible for each specific hazard and the respective state and national level plans, where appropriate.
Animal and plant disease
Biological (human related)
Bushfire
Chemical
Department of Agriculture,
Fisheries and Forestry
Queensland Health
Queensland Fire and
Emergency Services
Queensland Fire and
Emergency Services
Australian Veterinary Emergency Plan
(AUSVETPLAN)
Australian Aquatic Veterinary Emergency
Plan (AQUAVETPLAN)
Australian Emergency Plant Pest
Response Plan (PLANTPLAN)
Biosecurity Emergency Operations
Manual (BEOM)
State of Queensland Multi-agency
Response to Chemical, Biological,
Radiological Incidents
Wildfire Mitigation and Readiness Plans
(Regional)
State of Queensland Multi-agency
Response to Chemical, Biological,
Radiological Incidents
Heat Wave
Pandemic
Queensland Health
Queensland Health
Heat Stress Response Plan
Queensland Pandemic Influenza Plan
National Action Plan for Human
Influenza Pandemic
Ship-Sourced Pollution Transport and Main Roads Queensland Coastal Contingency Action
Plan
National Plan for Maritime
Environmental Emergencies
Radiological
Terrorism
Queensland Health State of Queensland Multi-agency
Response to Chemical, Biological,
Radiological Incidents
Queensland Police Service Queensland Counter-Terrorism Plan
National Counter-Terrorism Plan
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
In the initial warning that an event is likely to occur or has occurred, agencies will be notified by the Disaster Management Office as follows:
Hazard/Event occurs
Disaster Management Office is notified.
DMO:
gathers intelligence
issues warning order
notifies LDC and LDCC/LDMG if activated
LDC decides whether to place staff/agencies on standby and/or activate
DMO notifies internal and external response agencies including:
Brisbane Transport
Brisbane Lifestyle
CARS
FSG
Crisis Communication
Queensland Police Service
Red Cross
DNPRSR
SES
DCCSDS
DCS
QPWS
Three primary Council locations will be established for setting up and pre-positioning agencies to support the operation. The following table outlines the lead roles and their locations.
Role
Local Disaster Coordinator (LDC)
Location
CEO’s conference room Brisbane
Regional Incident Controller Moreton
Island RIMT (RIMT - MI)
Incident Controller Brisbane LDCC
Queensland Parks and Wildlife Service
Incident Controller
Tangalooma Conference Room, Moreton Island or the RIMT forward command container
Level 1, Brisbane Square
Located at Ben-Ewa QPWS Ranger station but will co-locate at Tangalooma or in the field as required
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
The Incident Controller for the Moreton Island RIMT will be the Manager, Disaster
Management Office or delegate.
Key tasks for agencies in the warning set up & pre-position phase:
Initial planning for the evacuation strategy
Warning order promulgated
Teams placed on standby or activated and deployed to Moreton Island
Marshal points, embarkation and disembarkation points are identified based upon threat
Communications strategies are developed and evacuees are notified
Relevant resources are identified and deployed
RIMT Moreton Island (RIMT- MI) activated and established
Safety marshals identified and embedded
The operations order and administration instructions can all be found in the Moreton
Island SOP.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Figure 4: Stages of Evacuation – Phase 1: Withdrawal
Phase 1 of the operation is the withdrawal phase. During this phase priority is on the safe relocation of evacuees under the control of Queensland Police Service (QPS) from their location on the island to the mustering points, coordinated by Council.
Following this, evacuees will be moved to the departure area, coordinated by
Council, on Moreton Island, with support from QPS for processing by Red Cross,
QPS and Tangalooma Management as required.
In the interest of expedience, processing may be conducted in Phase 2 (during transit), Phase 3 (on arrival to safe location) or Phase 4 (upon registration into a
Council evacuation centre).
Key tasks for agencies during the withdrawal phase are:
Resources are on site and in place
Embarkation points are activated and managed
Evacuation centres are established
Media releases are sent out
Registration process begins
Evacuees are relocated
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Figure 5: Stages of Evacuation - Phase 2: Extraction
The extraction phase is the transit to a safe location (most likely by sea by commercial provider) which is coordinated by Council with agency support.
Means of transit are to be staffed by Council, QPS and Red Cross/DCCSDS Officers as practical. Processing of evacuees may be undertaken in this phase in the interest of expedience and efficiency .
Key tasks for agencies during the extraction phase are:
Transport resources are used to move evacuees
Evacuees are transited to disembarkation point(s) and then on to established evacuation centres
Media releases are promulgated
Remaining residents are monitored
Campers are rotated to alternate campsites if safe to do so
If the most appropriate option is to move residents and tourists/campers to alternate locations on the island, the Manager Disaster Management Office will work in consultation with QPWS and other relevant agencies to make a decision on where evacuees will be relocated.
In bushfire events evacuees may be required to temporarily shelter in place. In a fire event at Moreton island the safest location is the beach until the threat passes.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Figure 6: Stages of Evacuation - Phase 3: Reception & Relocation
The reception and relocation phase is the disembarkation of evacuees at a safe haven and relocation to an evacuation centre. Council’s Emergency Human Services
Operational Team (EHSOT) will provide coordination of disembarkation with support from QPS and other agencies as required. Council’s BT is to provide a transportation solution with other agencies as required from the disembarkation point to the evacuation centre/s. Processing of evacuees may occur in this phase in the interest of expedience of evacuation from the threat.
Relocation of evacuees is in accordance with Brisbane City Council ’s Local Disaster
Management Plan, specifically the Evacuation Sub-plan and standard operating procedure. Council will establish and coordinate a council evacuation centre or centres with support from relevant agencies.
Key tasks for agencies during the reception and relocation phase are:
Transport and traffic management strategies are in place
Bump in process for evacuation centres is established
Evacuees arrive at evacuation centres
Evacuation centres are staffed and managed
Continued media messaging
Continued registration of evacuees
Work in consultation with QPWS on the movement of campers to alternate camp sites (if staying on the island)
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
Figure 7: Stages of Evacuation - Phase 4: Return
The return phase is the end state when all returning evacuees are safely returned to
Moreton Island following the disaster event.
Key tasks for agencies during the return phase are:
Clean up and safety assessment of the affected area on Moreton Island
Intelligence gathering to establish if it is safe to return
Notification to evacuees and general public on return status
Transportation back to Moreton Island
Reconditioning and pack up of evacuation centres (bump out process)
Stand down of response agencies
Transition to recovery agencies
Debrief
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 9 – MORETON ISLAND SUB-PLAN (V2.1)
QAS
QFES
QPS
QPWS
RIMT
RMP
SES
SOP
EHSOT
EMT
FSG
IAT
LDC
LDCC
LM
MDMO
BL
Brisbane LDMG
BT
CARS
CEO
DCCSDS
DCS
DDMG
DMO
DNPRSR
Brisbane Lifestyle
Brisbane Local Disaster Management Group
Brisbane Transport
Compliance and Regulatory Services
Chief Executive Officer
Department of Communities, Child Safety and
Disability Services
Department of Community Safety
District Disaster Management Group
Disaster Management Office
Department of National Parks, Recreation, Sport &
Racing
Emergency Human Services Operational Team
Executive Management Team
Field Services Group
Immediate Action Team
Local Disaster Coordinator
Local Disaster Coordination Centre
Lord Mayor
Manager, Disaster Management Office
Queensland Ambulance Service
Queensland Fire and Emergency Service
Queensland Police Service
Queensland Parks and Wildlife Service
Regional Incident Management Team
Risk Management Plan
State Emergency Service
Standard Operating Procedure
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