2015

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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 (the Act) . Council’s
LDMP outlines the framework, system and processes and specifies roles and responsibilities for disaster management in Council’s Local Government Area. Furthermore, it provides a framework of sub-plans for our most likely threats (such as severe storm, flood and bushfire) and for the recovery phase following an event.
Council’s LDMP is based upon best practice by addressing all phases of disaster management: prevention, preparedness, response and recovery. It focuses on minimising impacts on the disaster-affected community by ensuring a coordinated effort from all levels of government and non-government entities with responsibilities or capabilities in disaster management.
This is a dynamic, risk-based plan that will be kept up to date to reflect changes in legislation and best practice and to reflect the knowledge gained from the occurrence and management of natural and non-natural disasters globally.
The plan has been developed by Brisbane City Council in cooperation with our strategic partners in the Federal Government, Queensland State Government, neighbouring local authorities and key stakeholders in corporate and commercial industry.
Disasters are inevitable but, with effective mitigation strategies, prudent planning, effective rehearsal, cooperation and communication, we can enhance the resilience of our community and minimise the adverse consequences of any likely event.
Graham Quirk
LORD MAYOR
Chairman
Brisbane City Local Disaster Management Group
Page i of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
This plan has been developed by, and with the authority of, Brisbane City Council pursuant to
Sections 57 and 58 of the Queensland Disaster Management Act 2003 (the Act). The plan conforms to the State Plan guidelines. Section 80(1) (b) of the Act requires Council to approve its
Local Disaster Management Plan.
The plan has been reviewed and accepted.
…………………………………………. ……………………………….
Bob Gee Date
Assistant Commissioner, Queensland Police Service
District Disaster Coordinator
Brisbane City Council has a legislative responsibility to develop a Local Disaster Management Plan in accordance with Section 57(1) of the Act.
The Brisbane City Council Local Disaster Management Plan has been prepared under the direction of the Brisbane City Local Disaster Management Group.
The plan is approved and recommended for distribution.
………………………………… ……………………………….
Graham Quirk Date
LORD MAYOR Brisbane City Council
Chair, Brisbane City Local Disaster Management Group
Page ii of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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 will follow the approval and review cycle as outlined on page vi.
4. Approved amendments are to be listed in the table below.
5. Ve rsion control of the Local Disaster Management Plan is managed by Council’s
Disaster Management Office. Reissue of this introduction to the Plan following amendment or review will be recorded in the table below and advice of reissue will be distributed to the Disaster Management distribution list. Recipients should take all appropriate action to ensure they are in possession of the most recent version, and that previous versions in both hard copy and electronic forms are archived accordingly.
Further information can be requested by contacting the Disaster Management Office.
Brisbane LDMP Version Control
Version Date Reviewed by Endorsed by Accepted by Approved by Comments
2.0
2.1
May 2013 Manager,
Disaster
Management
Office
Local
Disaster
Coordinator
October
2013
Manager,
Disaster
Management
Office
Local
Disaster
Coordinator
District
Disaster
Coordinator
District
Disaster
Coordinator
Chair,
Brisbane
LDMG
Chair,
Brisbane
LDMG
2013 official version
2.2
3.0
June 2014 Manager,
Disaster
Management
Office
Local
Disaster
Coordinator
September
2015
Manager,
Disaster
Management
Office
Local
Disaster
Coordinator
District
Disaster
Coordinator
District
Disaster
Coordinator
Chair,
Brisbane
LDMG
Chair,
Brisbane
LDMG
Preamble moved before table of contents. Annual exercise details added.
Minor amendments to departmental names
2015 official version
Page iii of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
To
Lord Mayor
Chief Executive Officer
(CEO)/Local Disaster
Coordinator (LDC)
Executive Officer to
CEO
1
Copy
Electronic / Hard
1
1
1
1
1
To
Queensland Police Service
Queensland Fire and
Emergency Services
Department of Communities,
Child Safety & Disability
Services
Queensland Health
Brisbane District Disaster
Coordinator
Chief of Staff
State Emergency
Service –
Brisbane City Unit
Chief Operating Officer,
QLD Urban Utilities
Divisional Manager,
City Planning and
Sustainability
Divisional Manager,
Organisational Services
Manager,
Asset Services
Manager,
Corporate Risk
Management
Manager,
Corporate
Communications
Divisional Manager,
Brisbane Infrastructure
Local Disaster
Coordination Centre x 3 locations
1
1
1
1
1
1
1
1
1
6 3
Moreton Bay Regional Council
Redland City Council
QBuild
Manager, Construction Branch
Disaster Management Office
Divisional Manager
Brisbane Lifestyle
Divisional Manager, Brisbane
Transport
Cr Julian Simmonds,
Chairman Finance, Economic
Development & Administration
Committee
Manager, Urban Amenities Councillor Adrian
Schrinner,
Deputy Mayor
1 1
Executive Manager
Office of the Lord Mayor
& CEO
Field Services Group,
Disaster Response
1
1
1
Manager, Commercial &
Operational Services
Copy
Electronic / Hard
2
2
1
1
1
2
2
1
1
1
1
1
1
1
1
1
2
1
The approved Plan will be made available to the public via Council’s corporate website and libraries.
Page iv of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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
D.
E.
F.
G.
H.
A.
B.
C.
The Queensland Disaster Management Act 2003 (the Act)
Queensland Local Disaster Management Guidelines , September 2012
Emergency Management Australia , Australian Emergency Management Series,
Australian Government
Brisbane City Council Brisbane Incident Management System (BIMS)
Queensland Disaster Management Strategic Policy Framework
Australian Emergency Manuals Series, Manual 17 – Multi-Agency Incident Management
Australian Emergency Manuals Series, Manual 43
–
Emergency Planning
2013-2014 Queensland State Disaster Management Plan
This Local Disaster Management Plan (LDMP), together with its supporting Standard Operating
Procedures (SOPs), will be reviewed, practised and updated annually in accordance with the requirements mandated by the Brisbane Local Disaster Management Group (LDMG) and the Act.
6. This LDMP is to be reviewed:

On activation of an event requiring the use of this Plan

On activation of similar disaster management plans in other states, territories or overseas (where considered possible)

Annually in accordance with the requirements mandated by the Brisbane LDMG and the Act.
7. The MDMO is to brief relevant stakeholders and the Brisbane LDMG on the results of testing this plan.
8. The Chair of the Brisbane LDMG is to approve this Plan as per the following review cycle.
Page v of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
1. LDMP to LDMG
& key DM stakeholders for review & updating
7. LDMP distributed to
LDMG and key DM stakeholders
2. LDMP to Disaster
Management Office for review & editing
6. LDMP to Chair of
Brisbane LDMG for approval
3. LDMP to MDMO for endorsement/ amendments as required
5. LDMP to DDC for review & endorsement
4. LDMP to LDC for review, amendment & endorsement
Note:
The approved Plan will be distributed via Council’s corporate website and libraries.
Page vi of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
Foreword ........................................................................................................................................ I
Review of Plan ................................................................................................................................ ii
Authority to Plan ............................................................................................................................. ii
Amendments ................................................................................................................................... iii
Distribution List .............................................................................................................................. iv
References ..................................................................................................................................... v
Review ............................................................................................................................................ v
Approval and Review Cycle ........................................................................................................... vi
Table of Contents ........................................................................................................................ VII
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 .......................... 2
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 Queensland Disaster Management Committee ..................................................................... 7
2.7 State Lead Agencies ............................................................................................................. 7
2.8 External Agencies ................................................................................................................. 7
2.9 Alignment With State and Local Disaster Management Plan ................................................. 7
3.0 Principles of Disaster Management
– Brisbane City Council
........................................... 8
3.1 The Comprehensive Approach .............................................................................................. 8
3.2 All Hazards Approach ............................................................................................................ 9
3.3 All Agencies Approach .......................................................................................................... 9
3.4 Local Disaster Management Capability ................................................................................. 9
3.5 A Prepared and Resilient Community .................................................................................... 9
3.6 Additional Core Principles of Disaster Management .............................................................. 9
3.7 Consequence Management ................................................................................................ 10
Appendix 1 – Acronyms and Abbreviations ................................................................................ 11
Appendix 2 – Glossary ............................................................................................................... 12
Page vii of vii

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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
38 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 (1,146,787 as at 30 June 2014 2 ), and had an estimated population growth of 1.5% in 2014.
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:

Maintain or improve quality of life for the Brisbane community;

Ensure that Brisbane has the services and infrastructure to meet the liveability and sustainability challenges of the future; and

Provide an overarching plan of action for Council, its partners and the people of Brisbane for the next eighteen years.
The themes of the Brisbane Vision include aspirations for Brisbane to be ‘our friendly, safe city’.
These themes outline targets for Council and residents to achieve by 2031, including:

Our friendly, safe 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
1 Source: Bureau of Meteorology: bom.gov.au/weather-services/bushfire/about-bushfire-weather
2 Source: Australian Bureau of Statistics: http://www.abs.gov.au/
Page 1 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015 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 Act;

By building strong relationships with external partner agencies and among its internal business units to ensure interoperability; and

Via ongoing training and exercise programs for Council's Local Disaster Coordination
Centre (LDCC) and Regional Incident Management Teams (RIMTs), the focal point for coordination of Council's response to any event. Also, for the Brisbane City Local Disaster
Management Group (Brisbane LDMG), chaired by the Lord Mayor of Brisbane, to ensure that the political and executive arms of Council are familiar with their roles and responsibilities and are trained to effectively respond to, or recover from, disaster events.
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; and

Council works with vulnerable communities who are at risk of isolation in severe weather events, encouraging them to prepare Community Support Centre Plans and to establish community networks to improve communication and resilience.
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;
Page 2 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015

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.
Page 3 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
Chapter 1
Chapter 1A
Chapter 1B
Chapter 1C
Chapter 2
Chapter 3
Chapter 4
Chapter 5
Chapter 6
Chapter 7
Chapter 8
Chapter 9
Chapter 10
The primary focus of Brisbane City Council’s Local Disaster Management Plan is to effectively manage and mitigate the effects of disasters on the community wherever possible or practical, while preparing to respond when disasters do occur. Risk-based plans and management arrangements have been developed with a community focus. The risk assessment methodology can be found in the Chapter 1B of the plan. Hazard mitigation and residual risk treatment will be identified as part of the emergency risk management process. The LDMP is based upon a flexible and scalable ‘all hazards’ approach, encompassing the key principles of prevention, preparedness, response and recovery.
Local government underpins the Queensland disaster management system. During a disaster, local government provides initial support for the affected community until its resources are fully committed. State support is then requested, and is provided by State agencies in accordance with their core functions through the District Disaster structure. Similarly, Commonwealth support can be requested if State resources are exhausted or not available.
The aim of this Plan is to minimise the effects of, coordinate the response to, and manage the recovery from, a disaster or major emergency affecting the City of Brisbane. It provides information on the disaster management arrangements, identified risks and details on planning, response and recovery activities of Council and other supporting agencies.
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:
Introduction to Disaster Management in Brisbane City Council
Disaster Arrangements and Brisbane Incident Management System (BIMS)
Emergency Risk Management
Brisbane Community Profile
CBD Emergency Plan
Emergency Response Human Services Sub-plan
Evacuation and Reception Sub-plan
Volunteer Coordination Sub-plan
Donations Sub-plan
Traffic Management Sub-plan and Guidelines
Environmental Health Sub-plan
Moreton Island Sub-plan
Inundation Sub-plan
Page 4 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
Chapter 11
Chapter 12
Chapter 13
Chapter 14
Wildfire Sub-plan
Pandemic Sub-plan
Tsunami Sub-plan
Isolated Communities Sub-plan
Standard Operating Procedures ( SOPs), which support the above operational plans, are internal documents and can be found in TRIM container 109/555/14/674 or via the Disaster Management
Office.
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; and
 Describe the plans developed for specific threats, including guidelines for the operation of the plan following its activation.
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; and
To perform other functions given to the local government under the Act.
2.3.1 Disaster Response Capability
The Act 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. C ouncil’s disaster management training framework ensures
Council’s workforce can effectively and efficiently manage disasters. The framework promotes continuous improvement and disaster management capability and competency by recognising the professional an d 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:



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; and
Page 5 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
 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; and
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.
Establishment and functions of the Brisbane LDMG are to be in accordance with Sections 29 and
30 of the Act.
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.
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 Co uncil’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:

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; and

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;
Page 6 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015

The person appointed as the Executive Officer of the Group;

Representatives from the local governments in the d isaster district (Council’s representative is the Manager, Disaster Management Office, or an appropriately delegated representative); and

Relevant State agencies, as determined by the DDC.
The Queensland Disaster Management Committee (previously known as the State Disaster
Management Group) is established pursuant to Section 17 of the Act. Section 18 of the Act describes the functions of the Group.
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).
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;

Queensland Disaster Management Committee;

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; and

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.
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.
Page 7 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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
Act, 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.
A comprehensive approach is adopted throughout 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. There are three recognised phases of recovery:

Immediate Short-term : To support and meet the immediate needs of individuals, businesses and the community affected by an event. This may occur while essential services are being restored to the level where response agencies are no longer required to maintain them.

Medium-term : To continue the coordinated process of supporting affected communities in the reconstruction of physical infrastructure, restoration of the economy and of the environment and support for the emotional, social and physical wellbeing of those affected.
Recovery can occur for weeks and months after the event.

Long-term : To continue the established coordinated processes from the medium-term phase for as long as necessary after the event.
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.
Page 8 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
An all hazards approach encompasses all types of natural and non-natural 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.
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.
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 Disaster Management Group and Queensland Disaster Management Committee which should provide local governments with appropriate resources and support to help the local governments carry out disaster operations.
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.
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;
Page 9 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015



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 w ith Council’s Zero Harm policy; and
Efficient information management is critical for the successful management of a disaster.
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.
Page 10 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
DMDO
DMO
ERM
IAT
LDC
LDCC
LDMG
LDMP
LGA
LMRTG
MDMO
NSP
PPRR
PSBA
QDMA
QFES
QPS
RIMT
RSPCA
SDMP
SES
SMS
SOP
ARFF
BIMS
BMTMC
BoM
Brisbane LDMG
CBD
CEO
Council
DDC
DCCSDS
DDMG
Aviation Rescue and Firefighting
Brisbane Incident Management System
Brisbane Metropolitan Transport Management Centre
Bureau of Meteorology
Brisbane City Local Disaster Management Group
Central Business District
Chief Executive Officer
Brisbane City Council
District Disaster Coordinator
Department of Communities, Child Safety and Disability Services
District Disaster Management Group
Disaster Management Duty Officer
Disaster Management Office
Emergency Risk Management
Immediate Action Team
Local Disaster Coordinator
Local Disaster Coordination Centre
Local Disaster Management Group
Local Disaster Management Plan
Local Government Area
Lord Mayor’s Recovery Task Group
Manager, Disaster Management Office
Neighbourhood Safer Places
Prevention, Preparedness, Response, Recovery
Public Safety Business Agency
Queensland Disaster Management Arrangements
Queensland Fire and Emergency Services
Queensland Police Service
Regional Incident Management Team
Royal Society for the Prevention of Cruelty to Animals
State Disaster Management Plan
State Emergency Service
Short Message Service
Standard Operating Procedure
Page 11 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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 widespread or severe damage to the environment. (SDMP, the Act)
Page 12 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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 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 th e 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, Brisbane
Region, 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.
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.
Page 13 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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.
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.
Page 14 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015
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 134 (1) of the Fire and Emergency Services 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.
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.
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) There are three recognised phases of recovery:

Immediate Short-term : To support and meet the immediate needs of individuals, businesses and the community affected by an event. This may occur while essential services are being restored to the level where response agencies are no longer required to maintain them.

Medium-term : To continue the coordinated process of supporting affected communities in the reconstruction of physical infrastructure, restoration of the economy and of the
Page 15 of 16

Brisbane City Council Local Disaster Management Plan
Chapter 1 – Introduction to Disaster Management in Brisbane City Council 2015 environment and support for the emotional, social and physical wellbeing of those affected.
Recovery can occur for weeks and months after the event.

Long-term : To continue the established coordinated processes from the medium-term phase for as long as necessary after the event.
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.
Page 16 of 16