BRISBANE CITY COUNCIL
LOCAL DISASTER MANAGEMENT PLAN
INTRODUCTION TO DISASTER MANAGEMENT
IN BRISBANE CITY COUNCIL
July 2014 edition
BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 1 – INTRODUCTION TO DISASTER MANAGEMENT IN BRISBANE CITY COUNCIL (V2.2)
FOREWORD
Despite its enviable lifestyle, Brisbane is occasionally subjected to disasters, both natural and nonnatural. When an event occurs, local government has primary responsibility for managing the
impacts within its boundaries making it vital to have effective and coordinated disaster
management arrangements.
The Brisbane City Council (Council) Local Disaster Management Plan (LDMP) documents the
arrangements required under Queensland’s Disaster Management Act 2003. Council’s LDMP
outlines the framework, system and processes and specifies roles and responsibilities for disaster
management in Council’s Local Government Area. Furthermore, it provides a framework of sub
plans for our most likely threats (such as severe storm, flood and bushfire) and for the recovery
phase following an event.
Council’s LDMP is based upon best practice by addressing all phases of disaster management:
prevention, preparedness, response and recovery. It focuses on minimising impacts on the
disaster-affected community by ensuring a coordinated effort from all levels of government and
non-government entities with responsibilities or capabilities in disaster management.
This is a dynamic, risk-based plan that will be kept up to date to reflect changes in legislation and
best practice and to reflect the knowledge gained from the occurrence and management of natural
and non-natural disasters globally.
The plan has been developed by Brisbane City Council in cooperation with our strategic partners in
the Federal Government, Queensland State Government, neighbouring local authorities and key
stakeholders in corporate and commercial industry.
Disasters are inevitable but, with effective mitigation strategies, prudent planning, effective
rehearsal, cooperation and communication, we can enhance the resilience of our community and
minimise the adverse consequences of any likely event.
Graham Quirk
LORD MAYOR
Chairman
Brisbane City Local Disaster Management Group
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Review of Plan
This plan has been developed by, and with the authority of, Brisbane City Council pursuant to
Sections 57 and 58 of the Queensland Disaster Management Act 2003. The plan conforms to the
State Plan guidelines. Section 80(1) (b) of the Act requires Council to approve its Local Disaster
Management Plan.
The plan has been reviewed and accepted.
………………………………………….
Peter Martin
Assistant Commissioner, Queensland Police Service
District Disaster Coordinator
……………………………….
Date
Authority to Plan
Brisbane City Council has a legislative responsibility to develop a Local Disaster Management Plan
in accordance with Section 57(1) of the Disaster Management Act 2003.
The Brisbane City Council Local Disaster Management Plan has been prepared under the direction
of the Brisbane City Local Disaster Management Group.
The plan is approved and recommended for distribution.
…………………………………
Graham Quirk
LORD MAYOR Brisbane City Council
Chair, Brisbane City Local Disaster Management Group
……………………………….
Date
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 1 – INTRODUCTION TO DISASTER MANAGEMENT IN BRISBANE CITY COUNCIL (V2.2)
References
Table 1 summarises a comprehensive, but not exhaustive list of the many inter-related documents
that provide authority for the Brisbane City Council Local Disaster Management Plan.
Table 1: Disaster Management Reference List
References
A.
Disaster Management Act 2003 (Qld), effective 21 May 2014
B.
Queensland Local Disaster Management Guidelines, September 2012
C.
Emergency Management Australia, (1999), Australian Emergency Management Series,
Australian Government
D.
Brisbane City Council Brisbane Incident Management System (BIMS)
E.
Queensland Disaster Management Strategic Policy Framework
F.
Australian Emergency Manuals Series, Manual 17 – Multi-Agency Incident Management
G.
Australian Emergency Manuals Series, Manual 43 – Emergency Planning
H.
2013-2014 Queensland State Disaster Management Plan
Review
This Local Disaster Management Plan (LDMP), together with its supporting Standard Operating
Procedures (SOPs), will be reviewed, practised and updated annually in accordance with the
requirements mandated by the Brisbane City Local Disaster Management Group (LDMG) and the
Disaster Management Act 2003 (Qld).
1. This LDMP is to be reviewed:



On activation of an event requiring the use of this Plan
On activation of similar disaster management plans in other states, territories or
overseas (where considered possible)
Annually in accordance with the requirements mandated by the Brisbane LDMG
and the Disaster Management Act 2003 (Qld).
2.
The MDMO is to brief relevant stakeholders and the Brisbane LDMG on the results of
testing this plan.
3.
The Chair of the Brisbane LDMG is to approve this Plan annually as per the following
review cycle.
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Approval and Review Cycle
1. This Local Disaster Management Plan will be sent out to relevant stakeholders for
amendment and review annually.
2. All updates and amendments will be reviewed by Council’s Disaster Management Office,
who will edit and check the Plan.
3. The Plan will be reviewed and endorsed by the Manager, Disaster Management Office
(MDMO).
4. The Plan will go to Council’s CEO in their role as Local Disaster Coordinator (LDC) for
endorsement.
5. The Plan will be sent to the District Disaster Coordinator for their endorsement.
6. The Plan will be sent to the Chair of the Brisbane LDMG for final approval.
7. The approved Plan will be distributed via Council’s corporate website and libraries.
1. LDMP to LDMG
& key DM stakeholders
for review & updating
7. LDMP distributed to
LDMG and key DM
stakeholders
6. LDMP to Chair of
Brisbane LDMG for
approval
2. LDMP to Disaster
Management Office for
review & editing
3. LDMP to MDMO for
endorsement/
amendments as required
5. LDMP to DDC for
review & endorsement
4. LDMP to LDC for
review, amendment &
endorsement
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Amendments
1.
Proposed amendments to this LDMP are to be forwarded in writing to the Manager,
Disaster Management Office (MDMO), Office of the Lord Mayor and CEO, Brisbane
City Council, GPO Box 1434, Brisbane 4001.
2.
The MDMO may approve minor amendments to this plan.
3.
Proposed amendments that significantly affect the intent of this plan, roles and
responsibilities or external agencies must be endorsed by the Local Disaster
Coordinator (LDC) and forwarded to the Chair of the Brisbane LDMG for consideration
and approval. This type of amendment is referred to as a major amendment.
4.
Approved amendments are to be listed in the table below.
5.
Version control of the Local Disaster Management Plan is managed by Council’s
Disaster Management Office. Reissue of this introduction to the Plan following
amendment or review will be recorded in the table below and advice of reissue will be
distributed to the Disaster Management distribution list. Recipients should take all
appropriate action to ensure they are in possession of the most recent version, and that
previous versions in both hard copy and electronic forms are archived accordingly.
Further information can be requested by contacting the Disaster Management Office.
LDMP Introduction Version Control
Version
Date
Reviewed by
Endorsed by
Comments
1.0
March 2012
Manager, Disaster Management
Office
Chair, Brisbane LDMG
District Disaster Coordinator
2012 official
version
1.1
December
2012
Coordinator, Disaster Management
Office
Manager, Disaster
Management Office
LDMP split into
2 volumes (subplans and
SOPs) and
revised
accordingly.
Risk
management
tables updated.
2.0
May 2013
Manager, Disaster Management
Office
Chair, Brisbane LDMG
District Disaster Coordinator
2013 official
version
2.1
October
2013
Manager, Disaster Management
Office
Preamble
moved before
table of
contents.
Annual exercise
details added.
2.2
June 2014
Manager, Disaster Management
Office
Minor
amendments to
departmental
names
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Distribution List
To
Copy
To
Electronic / Hard
Copy
Electronic / Hard
Lord Mayor
1
1
Queensland Police Service
2
Chief Executive Officer
(CEO)/Local Disaster
Coordinator (LDC)
1
1
Queensland Fire and
Emergency Services
1
Executive Officer to
CEO
1
Department of Communities,
Child Safety & Disability
Services
1
Chief of Staff
1
Queensland Health
2
State Emergency
Service –
Brisbane City Unit
1
Brisbane District Disaster
Coordinator
2
Chief Operating Officer,
QLD Urban Utilities
1
Queensland Fire and
Emergency Services
2
Divisional Manager,
City Planning and
Sustainability
1
Moreton Bay Regional Council
1
Divisional Manager,
Organisational Services
1
Redland City Council
1
Manager,
Asset Services
1
QBuild
1
Manager,
Corporate Risk
Management
1
Manager, Construction Branch
1
Manager,
Corporate
Communications
1
Disaster Management Office
1
2
Divisional Manager,
Brisbane Infrastructure
1
Divisional Manager
Brisbane Lifestyle
1
1
Local Disaster
Coordination Centre x 3
locations
6
Councillor Adrian
Schrinner,
Deputy Mayor
Executive Manager
Office of the Lord Mayor
& CEO
Field Services Group,
Disaster Response
1
3
Divisional Manager, Brisbane
Transport
1
1
Cr Julian Simmonds,
Chairman Finance, Economic
Development & Administration
Committee
1
1
Manager, Urban Amenities
1
Manager, Commercial &
Operational Services
1
1
1
1
1
The approved Plan will be made available to the public via Council’s corporate website and
libraries.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 1 – INTRODUCTION TO DISASTER MANAGEMENT IN BRISBANE CITY COUNCIL (V2.2)
TABLE OF CONTENTS
FOREWORD ................................................................................................................................... I
Review of Plan ................................................................................................................................ ii
Authority to Plan ............................................................................................................................. ii
References ..................................................................................................................................... iii
Review ............................................................................................................................................ iii
Approval and Review Cycle ........................................................................................................... iv
Amendments................................................................................................................................... v
Distribution List .............................................................................................................................. vi
1.0 INTRODUCTION ................................................................................................................... 1
1.1 A City-Wide Plan ................................................................................................................... 1
1.1.1 Brisbane Vision 2031 ......................................................................................................... 1
1.1.2 Our Disaster Management Policy, Capability and Interoperability ...................................... 2
1.1.3 A Prepared Community ...................................................................................................... 2
1.2 Our Effective Disaster Management Response, Recovery and Compliance .......................... 3
2.0 AIM OF PLAN ....................................................................................................................... 4
2.1 Scope .................................................................................................................................... 4
2.2 Objectives ............................................................................................................................. 5
2.3 Legislative Compliance – Disaster Management Act, 2003 ................................................... 5
2.3.1 Disaster Response Capability ............................................................................................ 5
2.3.2 Annual Exercise ................................................................................................................. 6
2.4 Brisbane LDMG Responsibilities for Implementing the Plan .................................................. 6
2.5 Brisbane District Disaster Management Group ...................................................................... 6
2.6 State Disaster Management Group ....................................................................................... 7
2.7 State Lead Agencies ............................................................................................................. 7
2.8 External Agencies ................................................................................................................. 7
2.9 Alignment With State and Local Disaster Management Plan ................................................. 8
3.0 PRINCIPLES OF DISASTER MANAGEMENT – BRISBANE CITY COUNCIL ...................... 9
3.1 The Comprehensive Approach .............................................................................................. 9
3.2 All Hazards Approach .......................................................................................................... 10
3.3 All Agencies Approach ........................................................................................................ 10
3.4 Local Disaster Management Capability ............................................................................... 10
3.5 A Prepared and Resilient Community .................................................................................. 10
3.6 Additional Core Principles of Disaster Management ............................................................ 10
3.7 Consequence Management ................................................................................................ 11
APPENDIX 1 – ACRONYMS AND ABBREVIATIONS ............................................................... 12
APPENDIX 2 – GLOSSARY ...................................................................................................... 13
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 1 – INTRODUCTION TO DISASTER MANAGEMENT IN BRISBANE CITY COUNCIL (V2.2)
1.0 INTRODUCTION
Brisbane, the capital city of Queensland, is located on the coastal plain east of the Great Dividing
Range in South East Queensland, Australia. Its eastern suburbs line the shores of Moreton Bay.
The Central Business District (CBD) lies just 27 kilometres from the mouth of the bay. Brisbane is a
subtropical river city with hot, humid summers and dry, mild winters.
Its subtropical climate makes Brisbane prone to severe weather events and a variety of natural
disasters and hazards. During the summer months severe storms with hail, damaging winds and
heavy rainfall are common. These storms can result in flooding from the Brisbane River, local
creeks, storm surges along coastal areas and overland flow flooding. Much of Brisbane is built on
low-lying flood plains with the highest hills measuring 300 metres.
The Brisbane River is the major river passing through the city. The city includes the floodplains of
32 creeks as well as the southern floodplain of the South Pine River. There are also thousands of
overland flow paths in the hilly areas of the city.
Brisbane’s low-lying bayside suburbs are exposed to flood risks from storm tides associated with
cyclones and east coast lows which create large scale mounding of ocean water due to prevailing
winds from one direction. Storm tides may last for several days causing abnormally high water
levels for periods longer than the daily tidal cycle. Notable storm surge events occurred in Moreton
Bay in 1891, 1928, 1948, 1974 and again in 2013.
There have been many river floods, most notably the large floods in 1893, 1974 and 2011. There
has also been flooding in the various creeks, waterways and overland flow paths due to intense
shorter duration rainfall. It is certain that there will be major floods again in the future.
Other natural events that can affect Brisbane include bushfires, king tides, earthquakes,
heatwaves, landslides and dust storms. Brisbane’s peak risk for bushfires usually occurs in spring
and early summer (September to January each year)1.
Brisbane LGA has a population of just over one million (1,110,473 as at 30 June 20122), and had
an estimated population growth of 1.89% in 2012.
1.1
A City-Wide Plan
1.1.1 Brisbane Vision 2031
Brisbane Vision 2031 is Council’s long-term community plan for the city. It details the aspirations
for the city and outlines ideas for achieving this vision.
The main priorities for Brisbane Vision 2031 are to:
1
2

maintain or improve quality of life for the Brisbane community

ensure that Brisbane has the services and infrastructure to meet the liveability and
sustainability challenges of the future

provide an overarching plan of action for Council, its partners and the people of Brisbane
for the next eighteen years.
Source: Bureau of Meteorology: bom.gov.au/weather-services/bushfire/about-bushfire-weather
Source: Australian Bureau of Statistics & http://www.oesr.qld.gov.au/regions/brisbane/tables/erp-lga-qld/index.php
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
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The themes of the Brisbane Vision include aspirations for Brisbane to be ‘our friendly, safe city’.
These themes outline targets for Council and residents to achieve by 2031, including:

Our friendly, safe city By 2031, Brisbane is a more resilient city – a city that is safe,
confident and prepared for natural disasters. By 2031 effective emergency and disaster
management is integrated across South East Queensland to ensure that Brisbane has the
capability to prepare, plan, respond and recover in all-hazard risk environments to disasters
impacting on the city, in accordance with state legislation.
Council’s Local Disaster Management Plan’s principles of prevention, preparedness, response and
recovery provide a strong basis for meeting the liveability and sustainability challenges of the
future, as well as contributing to creating and maintaining a ‘our friendly, safe city’.
1.1.2 Our Disaster Management Policy, Capability and Interoperability
Council takes a proactive approach to building community resilience and awareness of a range of
disaster risks and will continue to develop and maintain its approach. It will do this in the following
ways:

By testing and integrating disaster management plans and arrangements to meet its
legislative responsibilities under the Disaster Management Act 2003.

By building strong relationships with external partner agencies and among its internal
business units to ensure interoperability.

Via ongoing training and exercise programs for Council's Local Disaster Coordination
Centre (LDCC) and Regional Incident Management Teams (RIMTs), the focal point for
coordination of Council's response to any event. Also, for the Brisbane City Local Disaster
Management Group (Brisbane LDMG), chaired by the Lord Mayor of Brisbane, to ensure
that the political and executive arms of Council are familiar with their roles and
responsibilities and are trained to effectively respond to, or recover from, disaster events.
1.1.3 A Prepared Community
Council is committed to preparing the community to understand its hazard specific risk and has
developed multiple tools to help residents determine their risk, and undertake the necessary
precautionary actions to prepare for disaster events. Council’s community initiatives include:

Brisbane Ready for Summer Campaign. Each year Council undertakes an All Hazards
Preparedness Campaign encouraging residents to prepare their homes, yards and families
for the natural hazards experienced during Brisbane’s subtropical summer storm season.

Severe Weather Early Warning Alert Service. Council offers a free early warning alert
service to notify residents of impending severe weather events by SMS, email and/or voice
message to landline telephones.

Creek Flood Early Warning Alert Service. Council offers a free early warning alert service to
notify residents who are prone to creek flooding of potential flooding to encourage residents
to undertake preparation activities.

Council works with vulnerable communities who are at risk of isolation in severe weather
events, encouraging them to prepare Community Support Centre Plans and to establish
community networks to improve communication and resilience.
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1.2
Our Effective Disaster Management Response, Recovery and Compliance
To develop effective disaster management response and recovery capabilities and meets its
legislative responsibilities, Council will need to:

Work with the State Government and other stakeholder agencies to cultivate a multidisciplinary approach to the response and recovery to any event that has a major
community consequence.

Maintain a comprehensive disaster management risk register.

Take a proactive approach in building community resilience and awareness of a range of
disaster risks.

Implement mitigation strategies and recommendations from disaster risk management
studies.

Develop and maintain disaster and emergency plans to assist emergency services and
other response agencies to carry out their statutory responsibilities.

Conduct a training and exercise program to test and validate the local disaster
management arrangements, and

Manage and expand the Brisbane SES Unit to be an effective, safe and efficient
organisation to meet its statutory and community responsibilities.
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2.0
AIM OF PLAN
The primary focus of Brisbane City Council’s Local Disaster Management Plan is to effectively
manage and mitigate the effects of disasters on the community wherever possible or practical,
while preparing to respond when disasters do occur. Risk-based plans and management
arrangements have been developed with a community focus. The risk assessment methodology
can be found in the Appendices for this section. The LDMP is based upon a flexible and scalable
‘all hazards’ approach, encompassing the key principles of prevention, preparedness, response
and recovery.
Local government underpins the Queensland disaster management system. During a disaster,
local government provides initial support for the affected community until its resources are fully
committed. State support is then requested, and is provided by State agencies in accordance with
their core functions through the District Disaster structure. Similarly, Commonwealth support can
be requested if State resources are exhausted or not available.
The aim of this Plan is to minimise the effects of, coordinate the response to, and manage 4the
recovery from, a disaster or major emergency affecting the City of Brisbane. It provides information
on the disaster management arrangements, identified risks and details on planning, response and
recovery activities of Council and other supporting agencies.
2.1
Scope
The scope of this Plan is to ensure appropriate strategies are developed and established to
minimise the adverse effects of a disaster or major emergency on the Brisbane community and
ensure that the optimum outcomes are delivered. In 2014, the CBD Emergency Plan was added to
the LDMP. The CBD Emergency Plan is an inter-agency Plan, which sees Council supporting
Queensland Police Service, who take the lead role in most instances (see chapter 2 for more
details).
This Plan is divided into the following chapters:
Chapter 1
Introduction to Disaster Management in Brisbane City
Council
Chapter 1A
Disaster Arrangements and Brisbane Incident
Management System (BIMS)
Chapter 1B
Emergency Risk Management
Chapter 1C
Brisbane Community Profile
Chapter 2
CBD Emergency Plan
Chapter 3
Emergency Response Human Services Sub-plan
Chapter 4
Evacuation and Reception Sub-plan
Chapter 5
Volunteer Coordination Sub-plan
Chapter 6
Donations Sub-plan
Chapter 7
Traffic Management Sub-plan and Guidelines
Chapter 8
Environmental Health Sub-plan
Chapter 9
Moreton Island Sub-plan
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
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Chapter 10
Inundation Sub-plan
Chapter 11
Wildfire Sub-plan
Chapter 12
Pandemic Sub-plan
Chapter 13
Tsunami Sub-plan
Chapter 14
Isolated Communities Sub-plan
Standard Operating Procedures (SOPs), which support the above operational plans, are internal
documents and can be found in TRIM container 109/555/14/620 or via the Disaster Management
Office.
2.2
Objectives
The objectives of Council’s Local Disaster Management Plan are to:

Describe the organisation, roles and responsibilities and procedures for effective disaster
management within Council.

Provide a comprehensive framework for disaster management activities within the City of
Brisbane.

Describe the committees and networks established for the coordination of multi-agency
responses.

Describe the plans developed for specific threats, including guidelines for the operation
of the plan following its activation.
2.3
Legislative Compliance – Disaster Management Act, 2003
Brisbane City Council has a legislative responsibility to develop a Local Disaster Management Plan
in accordance with Section 57(1) of the Queensland Disaster Management Act 2003 (the Act). Part
5, Section 80 of the Act lists the functions of local government as follows:

to ensure it has a disaster response capability.

to approve its local disaster management plan prepared under part 3.

to ensure information about an event or a disaster in its area is promptly given to the
district disaster coordinator for the disaster district in which its area is situated.

to perform other functions given to the local government under this Act.
2.3.1 Disaster Response Capability
The Queensland State Government’s Disaster Management Act 2003 directs local government to
take steps to develop and maintain an effective level of capability and capacity within their
organisation to Prevent, Prepare, Respond and Recover (PPRR) from major disaster events. It is
the responsibility of the Disaster Management Capability Team to ensure Brisbane City Council’s
disaster management workforce can effectively and efficiently manage disasters. The Disaster
Management Capability Framework promotes the professionalization of disaster management by
recognising the professional and personal development needs of Council’s disaster management
stakeholders.
The annual disaster management training continuum is designed to deliver a range of in-house
and accredited training packages, training material and professional development opportunities for
Council officers. The annual training continuum is based on three learning streams and a check
phase. These are:
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
Fundamental Stream: to provide an introduction to the principles and values of disaster
management.

Intermediate Stream: to cater to individuals’ roles and responsibilities.

Advanced Stream: for enhanced leadership and professional development.

Check Phase: to consolidate skills and knowledge gained that will be practiced, coached
and measured. This phase includes the annual exercise.
Mandatory training for each member of the disaster management workforce includes:

Queensland Disaster Management Arrangements, conducted by Queensland Fire and
Emergency Services (QFES).

BIMS (Brisbane Incident Management System) online training package.
Each of these programs provides the individual with a basic understanding of the requirements of
the Brisbane City Council disaster management model.
2.3.2 Annual Exercise
As part of its disaster preparedness, Brisbane City Council runs an annual exercise to test its Local
Disaster Management Plan and standard operating procedures. Following the exercise and any
actual activation, Council debriefs all staff involved and ensures that all opportunities for
improvement are noted and incorporated (where applicable) in future iterations of the LDMP.
2.4
Brisbane LDMG Responsibilities for Implementing the Plan
Establishment and functions of the Brisbane LDMG are to be in accordance with Sections 29 and
30 of the Disaster Management Act 2003.
Membership of the Brisbane LDMG is in accordance to Section 33 of the Act. The Chairperson to
the Brisbane LDMG is the Right Honourable Lord Mayor of Brisbane and the Local Disaster
Coordinator (LDC) is held by Council’s Chief Executive Officer (CEO).
Pursuant to Section 59 of the Act, this Plan is to be reviewed for its effectiveness at least once a
year.
The Plan may be reviewed at any other time deemed necessary by the Local Disaster Coordinator
(LDC) of the Brisbane LDMG or as recommended to the LDC by Council’s Manager, Disaster
Management Office (MDMO). Outcomes of the reviews are to be used to update and renew the
plan as appropriate.
2.5
Brisbane District Disaster Management Group
The Act establishes a district disaster management group for each district. A district covers one or
more of Queensland’s local government areas (LGAs). The Brisbane City and Redland City
Council LGAs are contained within the Brisbane Disaster District.
Brisbane’s District Disaster Coordinator (DDC) will be appointed by the Commissioner of Police
under the Act (Section 25 and 25A). The DDC is Council’s single point of contact into the
Queensland Disaster Management System.
The DDC chairs the district group as well as coordinating the disaster district. The DDC’s role is to
“coordinate disaster operations in the disaster district for the group” (Section 26A of the Act refers).
The DDC has powers under the Act (Section 64) to declare a disaster situation for the district, or a
part of it, with the approval of the Minister. Before declaring the disaster situation, the DDC must
take reasonable steps to consult with the district group and local government.
These powers are only active during the period that the disaster is declared. The powers of the
DDC as outlined in Part 4 of the Act are designed to do the following:
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



ensure public safety or public order
prevent or minimise loss of human life, or illness or injury to humans or animals
prevent or minimise property loss or damage, or damage to the environment
otherwise prepare for, respond to, or recover from, the disaster situation.
Coordinated whole-of-government support is provided at the District Disaster level through the
District Disaster Management Group (DDMG), which includes:





The person appointed as District Disaster Coordinator
The person appointed as Deputy Chairperson of the Group
The person appointed as the Executive Officer of the Group
Representatives from the local governments in the disaster district (Council’s representative
is the Manager, Disaster Management Office, or an appropriately delegated representative)
Relevant State agencies, as determined by the DDC.
2.6
State Disaster Management Group
The State Disaster Management Group is established pursuant to Section 17 of the Disaster
Management Act 2003. Section 18 of the Act describes the functions of the Group.
2.7
State Lead Agencies
At State level, ‘lead agency’ responsibility for specific functions and threats is normally assigned to
government departments based on their core business. The 2013-2014 State Disaster
Management Plan lists agency roles and responsibilities and states that, “District and State levels
provide local government with appropriate resources and support to help local governments carry
out disaster operations” (Section 9).
2.8
External Agencies
Council works with a number of external agencies, both government and non-government, to
prevent, prepare for, respond to and recover from disasters. Examples of some of these agencies
include, but are not limited to, the following:

















State and Federal government departments
Queensland Police Service
Queensland Fire and Emergency Services
Queensland Ambulance Service
Queensland Health
State Disaster Management Group
Brisbane District Disaster Management Group
SES
Brisbane Metropolitan Transport Management Centre (BMTMC)
Bureau of Meteorology
Red Cross
RSPCA
Energex
Queensland Urban Utilities
Brisbane Airport Corporation
Port of Brisbane Corporation
Maritime Safety Queensland
Representatives from these agencies are required to be authorised delegates for their
organisations, with the ability to make decisions on behalf of their organisations.
More information on the roles and responsibilities of external agencies can be found in Council’s
Disaster Management sub-plans and SOPs.
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2.9
Alignment With State and Local Disaster Management Plan
This Brisbane City Council Local Disaster Management Plan (LDMP) has been developed to align
with the State and District Disaster Management Plans. It aligns with the five main principles of
disaster management, which form the basis of Queensland’s Disaster Management Arrangements
(QDMA) and the Australian Emergency Management Arrangements. These principles are outlined
in the next section.
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3.0 PRINCIPLES OF DISASTER MANAGEMENT – BRISBANE CITY
COUNCIL
All events, whether natural or caused by human acts or omissions, should be managed in
accordance with the strategic policy framework, the State disaster management plan, and any
disaster management guidelines.
Council’s disaster management principles are based on the five guiding principles outlined in the
Disaster Management Act 2003, and which form the basis of the QDMA:
1. A comprehensive approach
2. An all hazards approach
3. An all agencies approach
4. Local disaster management capability
5. A prepared, resilient community.
3.1
The Comprehensive Approach
A comprehensive approach is adopted during disaster management planning to ensure that risk
reduction and community resilience are developed in unison, while maintaining effective response
and recovery capabilities.
The Queensland disaster management system is based on disaster management best practice
and the comprehensive approach, which identifies four phases in disaster management. It provides
an overarching framework for disaster management, and particularly in disaster response. The four
phases of the comprehensive approach are prevention, preparedness, response and recovery
(PPRR):
Prevention: This includes hazard identification, risk assessment, and implementation of measures
to avoid the disaster or to reduce or eliminate potential loss of life or damage to property and to
protect economic development.
Preparedness: This includes arrangements or plans to ensure timely response, relief and
rehabilitation in the event of a disaster. It requires appropriate organisational structures, trained
persons, plans and procedures.
Response: This is the process by which immediate assistance is provided to affected persons and
sections of the community. Response operations deal with the immediate issues related to the
disaster. The aims of response operations are to save lives, protect property, and render an
affected area safe.
Recovery: This is the process by which an affected community is assisted in regaining a proper
level of functioning following a disaster. It comprises two stages: initial recovery and long-term
recovery/reconstruction.

Initial recovery: The aim is to satisfy personal and community needs, and to restore
services to the level where local government and the normal responsible agencies can
manage the continuing process.

Long-term recovery/reconstruction: Long-term recovery, reconstruction or
rehabilitation measures are the subject of separate arrangements and will be done in
accordance with the recovery terms of reference.
Appendix 1 provides Council responsibilities and examples of measures and activities associated
with each phase of the comprehensive approach. Further information on the roles and
responsibilities of Council personnel and divisions as well as other agencies and organisations is
located within the sub-plans and standard operating procedures (SOPs) that form part of this Local
Disaster Management Plan and Disaster Management Standard Operating Procedures.
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3.2
All Hazards Approach
An all hazards approach encompasses all types of hazards and ensures one management system
for disaster management and civil defence arrangements. It involves the development of
arrangements for managing the extensive range of possible effects and risks associated with
disasters. The all hazards approach is useful in that the range of effects and risks can create
similar consequences which require similar actions including promulgation of warnings, evacuation,
infrastructure repairs, medical services and recovery methods. However, several risks will
necessitate specific prevention measures and response and recovery actions.
3.3
All Agencies Approach
An all agencies approach ensures partnering for disaster management arrangements at all levels
of government, and between a large number of organisations and agencies that are required to
support the four phases of the comprehensive approach. The all agencies approach effectively
coordinates the activities of these organisations and recognises the requirement to have an
understanding of disaster management policy framework and arrangements within their areas of
responsibility. It further recognises that some agencies will have a primary role, while others have a
secondary or support role throughout the phases.
3.4
Local Disaster Management Capability
Local governments should primarily be responsible for managing events in their local government
area. This is achieved through the Brisbane LDMG, and the support (where necessary) of the
District and State Disaster Management Groups which should provide local governments with
appropriate resources and support to help the local governments carry out disaster operations.
3.5
A Prepared and Resilient Community
This approach has strong, established links between individuals, voluntary organisations and local
authorities. It is acknowledged that individuals and communities can frequently help themselves
and provide rapid, readily available and effective relief while external assistance may be limited
due to resource capacities. When effectively integrated into disaster management arrangements,
volunteer organisations are capable of providing assistance and access to resources, expertise
and specialist skills. Individuals may be able to assist through knowledge of local hazards and
provide advice concerning risks. Additionally, individuals can reduce demand during responses by
being informed of the risks and following advice on appropriate precautions.
3.6
Additional Core Principles of Disaster Management
Council recognises other key principles of disaster management as follows:

Disaster management is a responsibility of all levels of government including nongovernment organisations to work in partnership with each other and to provide a
coordinated and seamless service to disaster-affected communities.

Command, control and coordination responsibilities should be clearly articulated within
the disaster management arrangements at local, district and state levels prior to a
disaster or emergency.

Disaster management arrangements must be supported by an organisational structure in
order to establish the responsibilities for all phases of the comprehensive approach
(Prevention, Preparedness, Response and Recovery).

Planning should be developed as a result of identifying, analysing and evaluating all
disaster risks, including identifying shortfalls in disaster management capability and
treatment options to ensure risks are managed effectively.

Activation of disaster management plans is vital to ensure timely and accurate response
to a disaster.
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
Council’s resources that exist for a day-to-day purpose should function as an extension
of their core business when responding to a disaster.

Individuals are to ensure that they comply with their workplace occupational health and
safety guidelines and policies and are responsible for their own safety, e.g. complying
with Council’s Zero Harm policy.

Efficient information management is critical for the successful management of a disaster.
3.7
Consequence Management
One of Brisbane City Council’s key priorities when responding to disasters is managing the
consequences of the event. This is aimed at reducing the impact on individuals, communities, the
economy and the environment. Disaster impacts may be either short or long-term. Consequence
management enables efficient and effective support to communities through key response and
recovery arrangements.
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APPENDIX 1 – ACRONYMS AND ABBREVIATIONS
ARFF
Aviation Rescue and Firefighting
BIMS
Brisbane Incident Management System
BoM
Bureau of Meteorology
Brisbane LDMG
Brisbane City Local Disaster Management Group
CBD
Central Business District
CEO
Chief Executive Officer
Council
Brisbane City Council
DDC
District Disaster Coordinator
DDMG
District Disaster Management Group
DMDO
Disaster Management Duty Officer
DMO
Disaster Management Office
ERM
Emergency Risk Management
EWN
Early Warning Network
IAT
Immediate Action Team
IGEM
Inspector General Emergency Management
LDC
Local Disaster Coordinator
LDCC
Local Disaster Coordination Centre
LDMP
Local Disaster Management Plan
LGA
Local Government Area
LMRTG
Lord Mayor’s Recovery Task Group
MDMO
Manager, Disaster Management Office
NSP
Neighbourhood Safer Places
PSBA
Public Safety Business Agency
QFES
Queensland Fire and Emergency Services
QPS
Queensland Police Service
RIMT
Regional Incident Management Team
SDMP
State Disaster Management Plan
SES
State Emergency Service
SOP
Standard Operating Procedure
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APPENDIX 2 – GLOSSARY
Alternative to evacuation: Although evacuation is considered an important element of emergency
response which may be effective in many situations, there will be occasions when it may be
assessed that people would be safer to stay and shelter in place. Depending on the nature of the
hazard, measures such as closing windows, isolation of air conditioning systems and listening to
the radio and/or TV to receive information can be taken to reduce vulnerability.
Assembly area: A designated area used for the assembly of emergency-affected persons. The
area may also incorporate an emergency shelter.
Assessment: Survey of a real or potential disaster, to estimate actual or expected damages, and
to recommend prevention, preparedness and response measures.
Body: A corporate or unincorporated body, including a government department, instrumentality,
agency, public or local authority.
Command: The direction of agency members and resources in the performance of the agency’s
roles and tasks. Authority to command is established by legislation or by agreement with the
agency. Command relates to agencies only, and operates vertically within the agency.
Community recovery: Focuses on those ‘people issues’ by which individuals, families and whole
communities are assisted to regain an acceptable level of functioning after the disaster. It is usually
divided into two phases, initial and longer-term recovery.
Community recovery centre: A centre established by Department of Communities, Child Safety
and Disability Services (DCCSDS) to facilitate the delivery of disaster recovery services to the
disaster-affected community by multiple agencies from a single location. (It is sometimes referred
to as a one-stop shop or a one-stop recovery centre).
Community recovery services: Services by which individuals, families and communities are
assisted to regain an acceptable level of functioning following a disaster through the provision of
information, personal support, resources, specialist counselling, mental health and community
services. The contributing agencies may include local government, volunteer/community-based
organisations, and private enterprise companies.
Community support centre: Community support centres are not evacuation centres but provide
information and support to shelter-in-location in isolated communities. The community support
centre is also a hub for sharing information with the community.
Control: The overall direction of the activities, agencies or individuals concerned. Control operates
horizontally across all agencies, functions and individuals. Situations are controlled.
Coordination: The bringing together of agencies and individuals to ensure effective disaster
management, but does not include the control of agencies and individuals by direction.
Coordination centre: A centre established at state, disaster district or local level as a centre of
communication and coordination during response and recovery operations. (For Brisbane City
Council this is the Local Disaster Coordination Centre (LDCC).)
Declaration of disaster: Issuance of a declaration of a state of disaster by designated authorities
in the wake of a potential or actual disaster whose magnitude or threatened magnitude is, or is
likely to be, so great in extent or severity that the (disaster management) measures will be beyond
the capability of the statutory services.
Disaster: A serious disruption in a community, caused by the impact of an event that requires a
significant coordinated response by the State and other entities to help the community recover
from the disruption.
‘Serious disruption’ means:

loss of human life, or illness or injury to humans,

widespread or severe property loss or damage, or
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
widespread or severe damage to the environment. (SDMP, the Act)
Disaster District: A part of the state prescribed under a regulation as a Disaster District. (The Act)
(Brisbane Disaster District comprises Brisbane City Council and Redland City Council.)
Disaster management: Arrangements to manage the potential adverse effects of an event,
including, for example, arrangements for mitigating, preventing, preparing for, responding to and
recovering from a disaster. (The Act)
Local Disaster Management Plan: Under section 57 of the Disaster Management Act a local
disaster management plan must be prepared.
“The plan must include provision for the following:
(a) the State group’s strategic policy framework for disaster management for the State, and the
local government’s policies for disaster management;
(b) the roles and responsibilities of entities involved in disaster operations and disaster
management in the area;
(c) the coordination of disaster operations and activities relating to disaster management
performed by the entities mentioned in paragraph (b);
(d) events that are likely to happen in the area;
(e) strategies and priorities for disaster management for the area;
(f) the matters stated in the disaster management guidelines as matters to be included in the
plan;
(g) other matters about disaster management in the area the local government considers
appropriate.” (The Act)
Disaster operations: Activities undertaken before, during or after an event happens, to help
reduce the loss of human life, illness or injury to humans, property loss or damage, or damage to
the environment, including, for example, activities to mitigate the adverse effects of the event.
(SDMP)
Disaster relief centre: A location from which a selection of services is provided to disasteraffected persons. The centre is established and operated by the Queensland Government. The
centre may also be referred to as a one-stop shop.
Disaster response capability: The ability to provide equipment and a suitable number of persons,
using the resources available to the local government, to effectively deal with, or help another
entity to deal with, an emergency situation or a disaster in the local government’s area. (SDMP)
Disembarkation point: The location where evacuees land or disembark from an evacuation
vessel.
District Disaster Coordinator: A person appointed as a district disaster coordinator under Section
25 of the Act. (The Brisbane District Disaster Coordinator is the Assistant Commissioner,
Queensland Police Service.)
Economic recovery: Refers to the processes and activities that are put in place following a
disaster, to encourage the resumption of normal levels of economic activity within the disasteraffected community. The contributing agencies may include all levels of government, industry
based organisations, and private enterprise companies.
Embarkation point: The location where evacuees are collected or embarked on an evacuation
vessel.
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Emergency human services: Refers to a range of activities undertaken to manage the immediate
impacts of a disaster or an emergency event on the people in the community. The functions to be
performed may include: evacuation, registration, catering, short-term sleeping accommodation and
ablutions, personal support, first aid services, volunteer coordination and management of
donations.
Evacuation: The planned relocation of persons from dangerous or potentially dangerous areas to
safer areas and eventual return.
Evacuation centre: Refers to a centre that provides affected people with basic human needs
including accommodation, food and water. In addition, to enhance the recovery process, other
welfare/recovery services should be provided.
Evacuation routes: The routes used by evacuees during an evacuation.
Evaluation: Post-disaster appraisal of all aspects of the disaster and its effects.
Event: Any of the following:

a cyclone, earthquake, flood, storm, storm tide, tornado, tsunami, volcanic eruption or other
natural happening;

an explosion or fire, a chemical, fuel or oil spill or a gas leak;

an infestation, plague or epidemic;

a failure of, or disruption to, an essential service or infrastructure;

an attack against the State; and

any other event similar to those listed above.
An event may be natural or caused by human acts or omissions. (SDMP)
Flooding Levels:
Minor flooding: This causes inconvenience such as closing of minor roads, the
submergence of low-level bridges. Some urban properties are affected.
Moderate flooding: This causes inundation of low-lying areas and may require the
evacuation of some houses and/or business premises. Traffic bridges may be closed.
Major flooding: This causes flooding of appreciable urban areas. Properties may become
isolated. Major disruption occurs to traffic. Evacuation of many houses and business
premises may be required.
Functional areas: A functional area of response and recovery activities is established to facilitate
the delivery of assistance required during the response and recovery phase of a disaster, to save
lives, protect property and public health, and to maintain public safety. Functional support
represents those types of assistance that communities will most likely need because of the
overwhelming impact of a disaster on their resources and response capabilities, or because of the
specialised or unique nature of the assistance required.
Hazard: A source of potential harm, or a situation with a potential to cause loss. (Emergency
Management Australia, 2004.)
Immediate evacuation: An evacuation resulting from a hazard impact that forces immediate
action, thereby allowing little or no warning and limited preparation time.
Incident: Day-to-day occurrences, which are responded to by a single response agency by itself or
in cooperation with other response agencies.
Infrastructure recovery: Focuses on the facilities, installations and utilities necessary for the
proper functioning of the community. These include power, water supply, transport systems and
communications.
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Initial recovery: Refers to the immediate short-term emergency support. The aim is to satisfy
personal and community needs and to restore services to the level where they can be managed by
local government and the normally responsible agencies.
LDCC Incident Controller: Manages Council's response to an event and is responsible for
coordinating and implementing the directions of the Brisbane City Local Disaster Management
Group (Brisbane LDMG). The LDCC Incident Controller coordinates Council's response through
the LDCC.
Lead agency: An organisation which, because of its expertise and resources, is primarily
responsible for dealing with a particular hazard.
Local Controller: The Local Controller of an SES unit means the person appointed as the Local
Controller under section 85 (1) of the Act. (The Act) (The Local Controller is nominated by the local
government.)
Local Disaster Coordinator: The Local Disaster Coordinator (LDC) is appointed under section 35
of the Act to coordinate the operations during a disaster for the Local Group.
Local Disaster Coordination Centre (Council LDCC): Focal point for implementing Brisbane
LDMG priorities and for coordinating Council’s response and recovery in the event of a disaster.
The LDCC is located on Level 1, George Street Podium, Brisbane Square.
Local Disaster Management Group: (Referred to as the Brisbane LDMG) Chaired by the Lord
Mayor, the Brisbane LDMG oversees the development and implementation of the Brisbane City
Council Local Disaster Management Plan.
Long-term Recovery. Refers to the long-term recovery, reconstruction and rehabilitation
measures. If required, they will be planned while the initial recovery activities are underway.
Mandatory evacuation: A compulsory evacuation resulting from an order by a designated
authority under relevant legislation.
Mitigation: Measures taken in advance of an event aimed at decreasing or eliminating its impact
on society and environment.
Neighbourhood Safer Places (NSP): A local open space or building where people may gather, as
a last resort, to seek shelter from a bushfire.
Outreach team: An outreach team is a team (usually two persons) deployed to assess the needs
of disaster-affected individuals and families and to advise them on the information, resources and
services available.
Planning: The process of developing a system for coordinating disaster response and establishing
priorities, duties, roles and responsibilities of different individuals and organisations, including
actual state of preparedness.
Preparedness: Action designed to minimise loss of life and damage, and to organise and facilitate
timely and effective rescue, relief and rehabilitation in case of disaster. Preparedness is concerned
with:

understanding the threat,

forecasting and warning,

educating and training officials and the population, and

establishing organisations for the management of disaster situations including preparation
of operational plans, training relief groups, stockpiling supplies, and earmarking necessary
funds.
Pre-warned evacuation: An evacuation resulting from an event that provides adequate warning
and does not unduly limit preparation time.
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Prevention: In relation to a disaster, includes the identification of hazards, the assessment of
threats to life and property and the taking of measures to reduce or eliminate potential loss to life or
property and protect economic development.
Recovery: The taking of preventative measures to recover from an event, including action taken to
support disaster-affected communities in the reconstruction of infrastructure, the restoration of
emotional, social, economic and physical wellbeing, and the restoration of the environment.
(SDMP)
Relief: The provision of immediate shelter, life support and human needs of persons affected by,
or responding to, an emergency.
Resources: Includes food, human resources, any horse or other animal, vehicle, vessel, aircraft,
plant, apparatus, implement, earthmoving equipment, construction equipment or other equipment
of any kind or any means of supplying want or need.
Response: In relation to a disaster, includes the process of combating a disaster and of providing
immediate relief for persons affected by a disaster.
Risk: Expected losses (of lives, persons injured, property damaged, and economic activity
disrupted) due to a particular hazard for a given area and reference period. Based on mathematical
calculations, risk is the product of hazard and vulnerability.
Self evacuation: Evacuation from an area under a person’s own arrangements.
Statutory services: A body that is constituted by or under an Act of the State or of the
Commonwealth and whose role usually includes counter disaster operations.
Voluntary evacuation: Evacuation by persons on their own volition, without compulsion.
Voluntary organisation: Non-governmental organisations or agencies, some possessing
personnel trained to assist when disaster strikes. Some have capabilities extending from local to
national and international levels.
Vulnerability: The degree of loss that could result from a potentially damaging phenomenon, or
the extent to which a country, area, community, or structure risks being damaged by a disaster.
(Zamecka and Buchanan) The conditions determined by physical, social, economic and
environmental factors or processes, which increase the susceptibility of a community to the impact
of hazards. (National Emergency Risk Assessment Guidelines)
Warning: The dissemination of messages signalling imminent hazard, which may include advice
on protective measures.
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