BCC Disaster Management Plan Section 2

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BRISBANE CITY COUNCIL
DISASTER MANAGEMENT PLAN
2013
EVACUATION SUB-PLAN
BRISBANE CITY COUNCIL DISASTER MANAGEMENT PLAN
CHAPTER 4 – EVACUATION SUB-PLAN (V2.0)
TABLE OF CONTENTS
1.0
2.0
2.1
3.0
3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
3.9
3.10
3.11
3.12
4.0
4.1
4.2
4.3
4.4
4.5
4.6
4.7
5.0
5.1
5.2
5.3
5.4
5.5
5.6
5.7
5.8
5.9
5.10
5.11
5.12
5.13
5.14
5.15
5.16
6.0
6.1
6.2
7.0
8.0
8.1
AMENDMENTS AND REVIEW ............................................................................................. 1
ADMINISTRATION AND GOVERNANCE ............................................................................. 3
References ............................................................................................................................ 3
INTRODUCTION ................................................................................................................... 4
Audience ............................................................................................................................... 4
Approval ................................................................................................................................ 4
Custodian .............................................................................................................................. 4
Purpose................................................................................................................................. 4
Authority ................................................................................................................................ 4
Activation .............................................................................................................................. 4
Evacuation stakeholders ....................................................................................................... 5
Scope .................................................................................................................................... 5
Definitions ............................................................................................................................. 5
Types of evacuation .............................................................................................................. 6
How to use this sub-plan during operations ........................................................................... 6
Other relevant Plans and SOPs to be used in conjunction with this plan: .............................. 6
EVACUATION SITE PLANNING ........................................................................................... 8
Evacuation centres ................................................................................................................ 8
Risk assessment ................................................................................................................... 8
Identifying and registering evacuation centres ....................................................................... 8
Establishing and operating evacuation centres...................................................................... 8
Handing over evacuation centres .......................................................................................... 9
Closing evacuation centres ................................................................................................... 9
Audit/inspection of evacuation centres .................................................................................. 9
EVACUATION PLANNING .................................................................................................. 10
The decision to evacuate..................................................................................................... 10
The authority to evacuate .................................................................................................... 10
The importance of community awareness and education .................................................... 10
Effective public communication ........................................................................................... 11
Self evacuation .................................................................................................................... 11
Risk to emergency workers ................................................................................................. 12
Security of evacuated premises........................................................................................... 12
Potential risks in moving people in hazardous situations ..................................................... 12
Need for coordination .......................................................................................................... 12
Media .................................................................................................................................. 12
Special needs groups in the community .............................................................................. 13
Time management in large scale evacuation....................................................................... 13
Letterbox drops ................................................................................................................... 14
Transport resources ............................................................................................................ 14
Time required to clear evacuation area ............................................................................... 14
Requests for evacuation centres to be established as a result of a PSPA declaration ......... 14
DECISION TO EVACUATE ................................................................................................. 16
Considerations for decision to evacuate .............................................................................. 16
Neighbourhood Safer Places (NSP) - for bushfires only ...................................................... 16
AUTHORITY TO COMMENCE EVACUATION (WITHIN COUNCIL) ................................... 18
WARNINGS ........................................................................................................................ 19
Introduction ......................................................................................................................... 19
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8.2 Warning dissemination and methods ................................................................................... 19
8.3 Roles and responsibilities for Council staff .......................................................................... 20
8.4 Notification to Council staff .................................................................................................. 20
8.5 Notification to external stakeholders .................................................................................... 21
8.6 Warning process ................................................................................................................. 22
9.0 WITHDRAWAL .................................................................................................................... 24
9.1 Traffic Management Strategy .............................................................................................. 24
9.2 Withdrawal of aged-care facilities ........................................................................................ 24
10.0
SHELTER ........................................................................................................................ 26
10.1 Responsibility for identifying evacuation centres in pre-planning ......................................... 26
10.2 Evacuation centre audit process in pre-planning ................................................................. 27
10.3 Register of evacuation centres ............................................................................................ 27
10.4 Principles of resource support ............................................................................................. 28
10.5 Establishing and operating an evacuation centre ................................................................ 29
10.6 Establishing an evacuation centre ....................................................................................... 30
10.7 Operating an evacuation centre........................................................................................... 31
10.8 Roles and responsibilities of agencies in evacuation centres .............................................. 31
10.9 Setting up an evacuation centre .......................................................................................... 31
10.10 Set-up considerations ...................................................................................................... 32
10.11 Other factors when setting up an evacuation centre ......................................................... 32
10.12 Volunteer management (of non-SES persons) and donations management .................... 33
10.13 Handing over an evacuation centre to oncoming staff ...................................................... 33
10.14 Pets and animal welfare ................................................................................................... 33
10.15 Responsibilities ................................................................................................................ 34
10.16 Animal Shelters ................................................................................................................ 34
10.17 Coordinating animal evacuations ..................................................................................... 34
10.18 Legislative role for animal management ........................................................................... 34
10.19 RSPCA’s role ................................................................................................................... 35
11.0
RETURN .......................................................................................................................... 36
11.1 Roles and responsibilities .................................................................................................... 36
11.2 Considerations .................................................................................................................... 37
11.3 Closure of evacuation centres ............................................................................................. 37
11.4 Debrief ................................................................................................................................ 37
APPENDIX 1: EVACUATION CENTRE AUDIT CHECKLIST ........................................................ 38
Site summary............................................................................................................................. 39
Site details ................................................................................................................................. 40
Amenities ................................................................................................................................... 41
Access/parking .......................................................................................................................... 41
Cooking and facilities ................................................................................................................. 42
Administration and equipment.................................................................................................... 43
Animal management .................................................................................................................. 43
APPENDIX 2: ACRONYMS AND ABBREVIATIONS .................................................................... 47
APPENDIX 3: BRISBANE INCIDENT MANAGEMENT SYSTEM ................................................. 48
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This Brisbane City Council Evacuation Sub-plan is an operational plan sitting under the Emergency
Human Services Sub-plan of the Brisbane City Council Disaster Management Plan. It has been
endorsed by the Brisbane City Local Disaster Management Group (Brisbane LDMG).
1.0
AMENDMENTS AND REVIEW
This Evacuation Sub-plan will be reviewed, practiced and updated annually in accordance with the
procedures mandated by the Brisbane LDMG.
It shall be reviewed at least once each year by a committee of appropriately qualified and
experienced personnel. The committee shall, as a minimum, consist of the Manager, Inclusive
Communities, a representative from Brisbane Lifestyle and a representative of Brisbane LDMG.
Representatives from external agencies may also be included as needed.
1.
Proposed amendments to this sub-plan are to be forwarded in writing to the Manager,
Disaster Operations (MDO), who may approve minor amendments.
2.
Proposed amendments that affect the intent of this sub-plan, roles and responsibilities or
external agencies must be endorsed by the Local Disaster Coordinator (LDC) and/or the
MDO and may be forwarded to the Brisbane LDMG for approval if required. This type of
amendment is referred to as a major amendment.
3.
Endorsed amendments are to be listed in the table below.
4.
Version control of this sub-plan is managed by Disaster Operations. Reissue of this subplan following amendment or review will be recorded in the table below and advice of
reissue will be distributed throughout the disaster management network. Recipients
should take all appropriate action to ensure they are in possession of the most recent
version, and that previous versions in both hard copy and electronic forms are archived
accordingly. Further information can be requested by contacting Disaster Operations.
Evacuation Sub-plan Version Control
Version
Date
Reviewed by
Endorsed by
Comments
1.0
March 2012
Manager, Disaster Operations
Chair, Brisbane LDMG
2012 official
version
District Disaster Coordinator
1.1
2.0
February
2013
Manager, Inclusive Communities
May 2013
Manager, Disaster Operations
Coordinator, Disaster Operations
Manager, Disaster
Operations
Revisions
Chair, Brisbane LDMG
2013 official
version
District Disaster Coordinator
5. This sub-plan is to be reviewed:

On activation of an event requiring the use of this sub-plan

On activation of similar disaster management plans in other states, territories or
overseas where considered possible
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
Upon annual review of Council’s Disaster Management Plan in accordance with the
Disaster Management Act 2003 (Qld)
6. This sub-plan, together with its supporting standard operating procedures (SOPs), is to be
tested annually. The MDO is to brief relevant stakeholders and the Brisbane LDMG on the
results of testing this plan.
7. In accordance with legislation, the Brisbane Local Disaster Management Plan and all its
underpinning sub-plans will be approved by the Chair of the Brisbane LDMG annually.
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2.0
2.1
ADMINISTRATION AND GOVERNANCE
References
Table 2.1.1 summarises a comprehensive, but not exhaustive, list of the many interrelated
documents that provide authority for this Evacuation Plan.
Table 2.1.1: Evacuation Plan reference list
References
A.
Disaster Management Act 2003 (Qld), reprint 3D, effective 11 December 2012 (the
Act)
B.
Queensland Local Disaster Management Guidelines, September 2012
C.
Australian Emergency Manuals Series, Part III, Emergency Management Practice,
Volume 2 – Specific issues. Manual 1 – Evacuation Planning
D.
Emergency Management Queensland, Queensland Evacuation Guidelines for
Disaster Management Groups, Version 1 August 2011
E.
Public Safety Preservation Act 1986
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3.0
Introduction
The Brisbane City Council Evacuation Sub-plan is an operational level plan that sits below the
Emergency Human Services Sub-plan within Brisbane City Council’s Disaster Management Plan,
prepared under the terms of the Disaster Management Act 2003 (Queensland). The operational subplans contained with this Disaster Management Plan are supported by Standard Operation
Procedures (SOPs). These SOPs are internal documents for Council use only and are constantly
updated to reflect improvements and learning in Disaster Management. The latest versions are
available on Council’s Disaster Management intranet or through Disaster Operations.
This plan is designed to be a guide for the evacuation, shelter and support services for people
affected by an emergency or disaster event in Brisbane City. It may also be used to care for people
from other local government areas (LGAs) who need these services outside their own LGA.
The Community Recovery Committee is established by the Brisbane LDMG to oversee the recovery
function of the Brisbane City Council Disaster Management Plan.
The Community Recovery Committee reports to the Brisbane LDMG on the adequacy of the
planning and operational arrangements for evacuation services.
3.1
Audience
This plan has been prepared for Council, the Lord Mayor, Brisbane LDMG, Council Business Units,
and key external stakeholders.
3.2
Approval
This Evacuation Plan is approved by the Brisbane LDMG under the terms and provisions of the Act.
3.3
Custodian
The MDO, on behalf of Council, is the custodian of this plan. The custodian has the responsibility for
implementing, evaluating, testing, reviewing and updating this plan. The custodian is also to ensure
proper quality, security, integrity, consistency, privacy, confidentiality and accessibility of the plan.
The Custodian’s contact details are:
Title: Manager, Disaster Operations
Contact: (07) 3403 8888
GPO Box 1434, Brisbane Qld, 4001
3.4
Purpose
The purpose of evacuation is to ensure people at risk during a disaster event can be moved to a
location of relative safety and provided with emergency human services, including short-term
accommodation if necessary.
3.5
Authority
This plan forms a sub-plan of the Brisbane City Council Disaster Management Plan, and is
developed under the authority of the Act.
3.6
Activation
This evacuation sub-plan will be activated by the Local Disaster Coordinator (LDC) when the nature
of risk to the community will require the movement of at risk persons to a safer location.
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3.7
Evacuation stakeholders
The Evacuation stakeholders consist of the following agencies:
Brisbane City Council – Disaster Operations (DISOPS)
Brisbane City Council – Building & Maintenance Services (BMS)
Brisbane City Council –Compliance and Regulatory Services (CARS)
Brisbane City Council – Corporate Communications (Crisis Communications)
Brisbane City Council – Community Lifestyle
Queensland Police Service – District Disaster Management Group
Emergency Management Queensland (EMQ)
Red Cross
Department of Communities, Child Safety and Disability Services (DCCSDS)
Queensland Health
Department of Public Works
Department of Primary Industries and Fisheries (DPI&F)
Queensland Government Chief Procurement Office
St John Ambulance Australia (Qld)
Lifeline
Adventist Development & Relief Agency (ADRA)
St Vincent de Paul
Spiritus
Salvation Army
Save the Children
Tzu Chi Australia, Brisbane
3.8
Scope
This section outlines how evacuation centres form part of this Evacuation Plan. It describes how
evacuation centres are identified, registered, established, operated, handed over and closed. It also
covers how they are audited and inspected to meet contemporary occupational health and safety
legislation. This plan does not cover the establishment or running of community support centres or
recovery centres and does not include Moreton Island (see Moreton Island Sub-plan and Moreton
Island SOP for further information).
Recovery centres are the responsibility of the State Government via the Department of
Communities, Child Safety and Disability Services (DCCSDS). Community support centres (CSCs)
are established as required in areas of the local government area that are subject to isolation. Refer
to the Isolated Communities sub-plan on the Disaster Management intranet for more information.
This plan aims to take an ‘all hazards’ approach. For this reason the plan will link and make
reference to relevant plans and procedures which may enhance the activation of this plan.
3.9
Definitions
In this plan and the supporting Evacuation SOP the following terminology will be used:
Evacuation centre is “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.” - Emergency Management Australia (EMA)
Community support centre (CSC) is a venue where people affected by a hazard that interrupts the
community can attend and receive assistance, support and information. The CSC is led by the
Queensland Police Service (QPS) and is not an official evacuation or recovery centre. Refer to the
Isolated Communities sub-plan on the Disaster Management intranet.
Evacuation Centre Coordinator (Brisbane City Council) is the appointed representative from
Brisbane City Council who is tasked with the coordination of Council staff assisting in evacuation
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centres and is Council’s liaison point with the Red Cross Evacuation Centre Manager. This role is
appointed to the Manager Community Lifestyle or delegate.
3.10 Types of evacuation
Immediate evacuation
“An evacuation resulting from a hazard impact, that forces immediate action, thereby allowing little
or no warning and limited preparation time. Hazardous materials accidents/incidents, air crash,
wildfire or earthquake are examples of events that may require immediate action” (EMA).
Pre-warned evacuation
“An evacuation resulting from an event that provides adequate warning and does not unduly limit
preparation time. Examples of this type of event may include flood, cyclone and storm surge” (EMA).
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” (EMA).
3.11 How to use this sub-plan during operations
This sub-plan should be utilised to guide the conduct of the evacuation and should be used in
conjunction with the Evacuation SOP (found on the Disaster Management intranet). In particular, the
actions outlined in the Evacuation SOP are to be referenced and recorded. This sub-plan has been
developed as an operational guide with pre-determined strategies able to be adapted to the specific
circumstances of the event.
This plan is broken into 5 phases as indicated in the diagram below. These 5 phases will determine
the planning considerations when evacuation is deemed necessary.
Hazard
threat/
impact
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
Any reference points to the Evacuation SOP or other relevant sources will be flagged by the symbol
3.12 Other relevant Plans and SOPs to be used in conjunction with this plan:
NB: All SOPs are documents for internal use only and are located on Council’s Disaster
Management intranet.

Brisbane City Council Evacuation SOP

Emergency Human Services Sub-plan

Volunteer Coordination Sub-plan and SOP

Donations Sub-plan and SOP
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
Moreton Island Sub-Plan and SOP

CBD Emergency Plan (QPS Plan)

Pinkenba Community Emergency and Evacuation Plan

Isolated Communities Sub-plan
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4.0
EVACUATION SITE PLANNING
4.1
Evacuation centres
Evacuation centres will generally be those facilities that have been inspected and cleared as
suitable for the purposes of this plan. However, alternative evacuation centres may be activated in
certain circumstances, for example, to cater for large numbers of evacuees, or for specialist needs,
such as elderly people, people with disabilities or those with child care requirements.
Evacuation centres may be community facilities or commercial premises, but priority should be given
to state, local government and community facilities. Commercial premises should have a preexisting contract, service level agreement or purchasing arrangements with Council or the
Queensland Government before being considered as an evacuation centre.
4.2
Risk assessment
Factors that will influence the decision for an evacuation will be dependent on the nature of the
hazard. Not all sites identified as evacuation centres will be completely free of risk. All decisions
made in relation to the choice of sites both in planning and during operations must consider the site
suitability in relation to:

What hazards will affect the centre or have already affected the centre

What capacity the centre holds

Access to and from the centre

Appropriate space for the length of time required

Compliance with work place health, safety, security and evacuation centre standards
Risk Assessment of hazards affecting the city of Brisbane can be found in Chapter 1B of the
Disaster Management Plan: Emergency Risk Management.
A site summary for each of the identified centres can be found in the appendices of the
Evacuation SOP on Council’s Disaster Management intranet.
If there is no alternative means of accommodation, people may initially be accommodated in an
evacuation centre. This is a short-term solution until either the evacuation centre transitions to a
recovery centre, it is safe to return to the evacuee’s primary residence, or the evacuee is resettled in
appropriate mid- to long-term accommodation by the DCCSDS.
4.3
Identifying and registering evacuation centres
Suitable evacuation centres will be identified, inspected, approved and registered by Brisbane City
Council’s Disaster Operations business unit. Procedures for identifying and registering of evacuation
centres are in the Evacuation SOP.
4.4
Establishing and operating evacuation centres
Building and Maintenance Services (BMS) are responsible for opening all Council owned facilities
with the exception of privately owned sites which will be opened by their own facility manager. The
Red Cross will manage the welfare of evacuees in the evacuation centre once it has been opened.
Note: Red Cross resources may be stretched if multiple events are occurring across the state.
Council will manage the facility and the resourcing of the facility. (See Bump in Bump out SOP in the
back of the Evacuation SOP for more details on opening, setting up and closing evacuation centres).
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4.5
Handing over evacuation centres
The Red Cross is to provide staff for each evacuation centre as soon as possible after a decision
has been made to establish evacuation centres. There may be an additional lag time during the
initial set up before appropriate staff can take over. Specialist tasks such as registration, medical
support, facilities management, animal management, catering etc. are to be taken over by
appropriately trained persons as soon as possible.
4.6
Closing evacuation centres
The decision to close an evacuation centre will be made by the Evacuation Centre Coordinator in
consultation with the Evacuation Centre Manager. The physical closure and refurbishment of
evacuation centres is the responsibility of the facility manager (BMS for Council owned sites) at the
time of the declaration, assisted by other agencies and organisations providing services within the
centre.
4.7
Audit/inspection of evacuation centres
To ensure the appropriateness of a location to serve as an evacuation centre and to keep abreast of
changes, listed evacuation centres are to be inspected biannually by BMS and audited by
Environmental Health Officers (EHO) to ensure they meet the appropriate standards (including
appropriate occupational health and safety measures). Red Cross will provide Council with
Evacuation Centre audit tools for use during inspections. A register of approved centres is
maintained by the Manager, Disaster Operations (MDO).
A copy of the site audit check list for new and existing sites can be found in Appendix 1 of this plan.
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5.0
EVACUATION PLANNING
As a result of a hazard impact or threat, evacuation of affected people may need to be considered.
This may involve a complex operation that has the potential to place evacuees at some risk during
its execution. Careful planning can minimise the risks associated with the process of evacuation.
Planning must take into account the following:
5.1
The decision to evacuate
Making the decision whether to evacuate or not requires timely and relevant information to reduce
the chance of exposing the community to further risk. Careful planning needs to be made to ensure
that the affected community is not evacuated too early causing complacency and associated
inconvenience and cost. Similarly, if the affected community is evacuated too late they may be
exposed to higher risk and potentially will have to shelter in place.
Further information on what considerations need to be made in relation to deciding to evacuate can be
found under ‘Decision to Evacuate’ in the Evacuation SOP on Council’s Disaster Management intranet.
5.2
The authority to evacuate
The decision to authorise an evacuation may occur under the following conditions/authorities:
5.3

Queensland Police Service (QPS) may order an evacuation under the Public Safety
Preservation Act 1986 (PSPA).

Queensland Fire and Rescue Service (QFRS) may order an evacuation under the
Fire and Rescue Service Act 1990 and PSPA.

Brisbane LDMG may recommend voluntary self evacuation of a community or
portions of a community.

Brisbane LDMG may request the District Disaster Coordinator (DDC) to declare a
Disaster Situation under the Act in order to effect a mandatory evacuation of a
community or portions of a community.

DDC may declare a Disaster Situation under the Act, subject to the approval of the
Minister.
The importance of community awareness and education
Effective community awareness is important for a resilient community. Public awareness and
education programs need to focus on the following:

Hazards within the community/understanding the risk

Where to find information on hazards that affect the community

How to be prepared: e.g. household emergency kits and emergency plans

Understanding what to do in an evacuation: e.g. information sources, what to take,
where to go and how to get there
Special needs arrangements during times of emergency or disaster

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5.4
Effective public communication
Campaigns are an effective way of educating the public prior to disasters. A schedule of campaigns
is to be managed throughout the year to ensure timely dissemination of information.
Campaigns and information dissemination can be arranged through the following:
5.5

A collaborative approach with other organisations/agencies such as the Brisbane
Ready for Summer Campaign

The internet: Brisbane City Council has a link to “Emergency Management” on its
website which includes information on how to prepare for emergencies and
information on a variety of hazards

Community events: e.g. information stands and demonstrations

Conferences and educational institutes: e.g. guest speakers

Letterbox drops: e.g. community newsletters (Living in Brisbane), community service
announcements (CSAs)

Social Media: e.g. Twitter and Facebook

Other associated agencies: e.g. Energex and EMQ

Councillor information: e.g. newsletters
Self evacuation
Upon timely advice of the need to evacuate, many people will choose to self evacuate. Self
evacuation has the potential to be beneficial in some circumstances as it permits emergency
services to focus on those in most need of assistance.
Self evacuees are encouraged to seek refuge with family and friends as first priority. This
information should be communicated as early as possible so that people can safely move to these
locations. The Crisis Communications team must be consulted on any public information that needs
to be disseminated.
The Crisis Communications team is made up of personnel from Corporate Communications and is
responsible for writing CSAs, Lord Mayoral briefings, and collaborating with the Contact Centre for
scripting and other agency media representatives. (Refer to the Crisis Communication SOP on the
Disaster Management intranet.)
Although self evacuation is encouraged, a degree of coordination is required particularly in relation
to transport and safe access. It is critical that information on safe passage through the transport and
road network be disseminated to the public.
The Brisbane Metropolitan Transport Management Centre will disseminate these messages through
the 13 19 40 hotline and internet page (http://131940.qld.gov.au/). Other methods such as the use of
Variable Message Signs, which are electronic signs, can be used to warn motorists.
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5.6
Risk to emergency workers
During evacuations the risk to emergency workers may be high, especially in situations where doorto-door warnings are being given. Emergency workers becoming casualties may jeopardise the
effectiveness of the evacuation operations.
The Zero Harm policy must be adhered to at all times and applies to all staff including those in the
field and those in the Local Disaster Coordination Centre (LDCC). All evacuation decisions must
keep Zero Harm in mind.
Refer to Zero Harm policy (Council intranet page) http://intranet.bcc.qld.gov.au/safetywellness/
5.7
Security of evacuated premises
Security of evacuated premises is an important message that must be communicated to the public.
Perception of security of vacated property may influence whether or not individuals decide to
evacuate. It is important that the community understands how to secure their property prior to
leaving.
An example Crisis Communications message can be found in the appendices of the
Evacuation SOP.
Security arrangements need to be made early for affected communities as well as evacuation
centres in consultation with the QPS and Building and Maintenance Services (BMS) who have
contracts with a security company.
5.8
Potential risks in moving people in hazardous situations
There are a number of potential risks associated with moving people in hazardous situations.
Considerations that need to be made include:
a. Access and egress: what roads or thoroughfares have been affected?
b. How will people be transported?
c. Does the move put anyone at risk?
Refer to the Evacuation SOP ‘Potential risk considerations when moving evacuees’.
5.9
Need for coordination
Evacuations require a significant level of coordination with internal business units as well as external
agencies to ensure that all parties are accurately informed. The Manager, Community Lifestyle (or
delegate) acting as the Evacuation Centre Coordinator will handle this role The Evacuation Centre
Coordinator will be the liaison point between Council’s LDCC and the established evacuation
centres, in particular with the Red Cross Evacuation Centre Manager and the DCCSDS. This role
has a reporting function to the Brisbane LDMG and is responsible for any Council staff deployed
onsite.
5.10 Media
All media requests will be referred to the LDCC via the Crisis Communications team who will contact
the Lord Mayor’s media advisors. Under Council’s media policy, no Council staff are to speak to the
media without the approval of the Crisis Communications team.
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Refer to Council’s media policy: http://intranet.bcc.qld.gov.au/connect-andcollaborate/communication-in-council/media/dealing-with-media/Pages/Media-relationspolicy.aspx
5.11 Special needs groups in the community
Special needs groups in the community include, but are not limited to, those who are aged, infirm,
incapacitated and those with disabilities. Special needs may also include children, and those with
language difficulties (e.g. non-English speaking backgrounds).
It is important that special needs groups are identified early and appropriate arrangements made in
a timely manner as resources and services may be more difficult to access dependent on the scale
of the event.
There are a number of key considerations that need to be made when planning for special needs
groups.
Refer to the Evacuation SOP ‘Considerations for special needs evacuees’.
The transporting of special needs evacuees can be highly specialised and often limited resources
are available to assist. It is important not to assume that standard transport arrangements will be
suitable. There may be requirements for transport to include wheelchair accessible vehicles with
hoists and transport for bedridden evacuees.
Similarly, bedding requirements for special needs evacuees needs to be brought into consideration
when planning. Standard bedding arrangements (mattresses or camp stretchers) may not be
suitable for elderly, infirm or incapacitated persons and those in wheelchairs.
Alternate means of accommodating special needs evacuees need to be considered. Dependent on
numbers, special needs evacuees may be best suited and prioritised for established
accommodation: e.g. hotels/motels. This form of accommodation is equipped with wheelchair
accessible rooms and ground-floor accommodation.
If hotels/motels are not available, community organisations may be able to assist by offering
temporary accommodation in their facilities for approximately 72 hours until the DCCSDS can assist
with establishing long-term accommodation.
Refer to the Evacuation SOP ‘Temporary accommodation for special needs evacuees’.
5.12 Time management in large scale evacuation
It is critical that all evacuations are conducted in a timely manner. In some circumstances there will
be very little lead time (e.g. tsunami).
There will be a large number of personnel that will need to be contacted at the immediate start of an
evacuation.
Refer to the Evacuation SOP ‘Standby/Activation priority list - evacuation centres’.
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5.13 Letterbox drops
In some cases letterbox drops will be required. Council officers may be requested to provide support
for this. All scripting for letterbox drops will be provided by the Crisis Communications team.
5.14 Transport resources
Where large numbers of people need to be transported, Brisbane Transport may be able to assist
with the transport of people via bus. Bus transport may not be suitable for special needs evacuees.
Special needs evacuees will need to be identified and special arrangements made.
Note: Queensland Health is not responsible for the transport of special needs patients unless
transportation to hospital is required. Dependent on availability, some patient transport vehicles and
ambulances may be able to assist, provided they are not required for other operational purposes.
Refer to the Evacuation SOP ‘Provision of Transport’.
5.15 Time required to clear evacuation area
Careful consideration needs to be made when planning to evacuate people from an affected area.
Time may be a critical element: e.g. for a rapidly evolving event such as a bushfire or tsunami as
opposed to a slow moving event such as a flood.
Evacuations are conducted by the QPS who have legislative authority under the Public Safety
Preservation Act 1986 (PSPA). The PSPA is used under the following circumstances:
“to provide protection for members of the public in terrorist, chemical, biological,
radiological or other emergencies that create or may create danger of death, injury
or distress to any person, loss of or damage to any property or pollution of the
environment and for related purposes” (Part 1, Public Safety Preservation Act 1986).
Timely messaging to the community is extremely important to reinforce the need to evacuate as well
as notifying evacuees on what to bring.
When the LDCC is activated Crisis Communications needs to be informed immediately about any
evacuation requests so that messaging can be disseminated through the Contact Centre,
Community Service Announcements and social media and briefed to the Lord Mayor. Similarly, if the
LDCC isn’t activated Disaster Operations will work with other agencies on evacuation messaging
and Corporate Communications will be notified in case of media enquiries.
Early consideration needs to be made in regard to special needs evacuees who may take longer to
evacuate due to mobility problems and specialist transport requirements.
The Brisbane Metropolitan Transport Management Centre may be able to assist by advising on road
conditions, access issues and alternate routes. Traffic signal support (through manipulating traffic
lights) may also assist with clearing areas quickly. The QPS may provide traffic control, close roads
or activate traffic management plans as needed.
5.16 Requests for evacuation centres to be established as a result of a PSPA
declaration
The Local Disaster Coordinator (LDC) or Manager, Disaster Operations (MDO), Disaster
Management Duty Officer (after hours) or delegate may be notified by the QPS once a PSPA has
been activated and will advise on approximate numbers of evacuees and exclusion zones. QPS will
also be responsible for closing streets and access points around affected areas. The MDO or
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delegate will immediately notify the LDC if a PSPA has been activated and/or if evacuations are
required.
If evacuation centres need to be established, QPS will make a request through the LDC or through
the LDCC if it is activated. It will be the responsibility of the LDC or the LDCC to contact the
Manager Community Lifestyle to inform them that evacuation centres need activating.
The Manager Community Lifestyle will assume the role of Council’s Evacuation Centre Coordinator.
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6.0
DECISION TO EVACUATE
Hazard
threat/
impact
6.1
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
Considerations for decision to evacuate
Decision makers need to analyse all information and intelligence on the event and make an
assessment on the necessity to evacuate the at risk community.
The decision to evacuate occurs on many levels leading up to or during an event. Examples include:



6.2
Self evacuation: Residents are informed of the impending danger and decide to
evacuate themselves.
Voluntary evacuation: Residents are informed of the impending danger and are
advised that it is recommended that they self evacuate. Voluntary evacuation is an
option that Council can recommend via the LDMG to residents in affected areas.
Formal evacuation: e.g. under the PSPA where authorised officers can formally give
direction to residents to be evacuated due to safety reasons. Council has no
legislative powers under the PSPA.
Neighbourhood Safer Places (NSP) - for bushfires only
Following the 2009 Victorian Bushfire Royal Commission Interim Report a recommendation was
made that people need a range of options to increase their safety in the event of bushfire.
An NSP is a local open space or building where people may gather, as a last resort, to seek shelter
from a bushfire.
The QFRS recommend that people living in bushfire prone areas have a personal Bushfire Survival
Plan based on the Bushfire Survival Plan Guidelines. This should be used by individuals as a first
priority to self evacuate.
Bushfire Survival Plan - Refer to http://www.ruralfire.qld.gov.au and click on “Bushfire Survival
Plan”
Self evacuation for fire may be determined through public messaging (e.g. Bureau of Meteorology
warnings, radio announcements etc.) or through bushfire ratings displayed by QFRS (low to
catastrophic).
Residents in bushfire prone areas also need to understand where their Neighbourhood Safer Places
(NSP) are located, and what to do until a fire passes. The NSPs should only be used as a last resort
and must be used in conjunction with the Bushfire Survival Plan Guidelines.
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In Brisbane the following sites have been identified through QFRS as suitable Neighbourhood Safer
Places:
Title
Brookfield Showgrounds
Type
Open
Space
Belmont State School
Open
Space
Ferny Grove State School Open
Space
Hilder Road State School Open
Space
Mitchelton State School Open
Space
Mitchelton State High
Open
School
Space
Wittonga Park
Open
Space
Fenwick Park
Open
Space
Location
Latitude / Longitude
Brookfield Road, Brookfield Qld 4069 -27.4937656 (lat) /
(long)
Old Cleveland Road, Carindale Qld -27.5025880 (lat) /
4152
(long)
Finvoy Street, Ferny Grove Qld 4055 -27.4038732 (lat) /
(long)
Kaloma Road, The Gap Qld 4061
-27.4366284 (lat) /
(long)
Glen Retreat Road, Mitchelton Qld -27.4121536 (lat) /
4053
(long)
Samford Road, Mitchelton Qld 4053 -27.4108446 (lat) /
(long)
Hilder Road, The Gap Qld 4061
-27.4381948 (lat) /
(long)
Corner of Samford Road and Glen -27.4124540 (lat) /
Retreat Road, Mitchelton Qld 4053
(long)
152.9117367
153.1154405
152.9291283
152.9360072
152.9691451
152.9661625
152.9332391
152.9711192
The NSP may be used in the following circumstances:



The failure of an individual’s Bushfire Survival Plan
Planning to stay has become unsafe
The fire has escalated to an ‘extreme’ or ‘catastrophic’ level and voluntary evacuation is
the safest option
Limitations of the NSP include:





Firefighters may not be present, as they are likely to be fighting the main fire front
elsewhere.
NSPs do not cater for animals or pets.
NSPs do not provide meals or amenities.
NSPs may not provide shelter from the elements, particularly flying embers.
NSPs are not necessarily suitable for those with special needs.
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7.0
AUTHORITY TO COMMENCE EVACUATION (WITHIN COUNCIL)
Advice will come from QPS or QFRS directly to any of the following roles if evacuations need to
occur:

The Local Disaster Coordinator (LDC)

The Brisbane LDMG (if activated)

The MDO (business hours) or delegate

If anyone else on this list is informed first the LDC and MDO must be informed immediately
as well as the Lord Mayor’s Office.

The Disaster Management Duty Officer (after hours/public holidays)

The LDCC (if activated)
A decision will be made by the Chair of the LDMG (if activated) to open evacuation centres.
Alternatively, upon receiving advice of the need to open evacuation centres, the LDC will liaise with
the District Disaster Coordinator (DDC) and Emergency Management Queensland Area Director to
gather further intelligence on the situation. When a decision has been made to open evacuation
centres the Manager Community Lifestyle will be notified by the LDC to assume the role of
Evacuation Centre Coordinator.
If the MDO is the first point of contact to receive notification on the need to open evacuation centres
the LDC must be advised immediately.
A number of decisions need to be made prior to making an evacuation to ensure the safety of
evacuees and to ensure the appropriateness of moving evacuees.
Refer to the Evacuation SOP ‘Decision to evacuate considerations and strategy’.
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8.0
Warnings
Hazard
threat/
impact
8.1
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
Introduction
The warning phase of evacuations comprises public information in the form of advice or direction. It
is critical that timely and accurate information be given through the warning phase.
The following factors may influence the effectiveness of the warning:
 Time
 Distance
 Visual evidence
 Threat characteristics
 Sense of urgency
8.2
Warning dissemination and methods
Warnings will be issued by the most efficient and appropriate means, and are disseminated via a
number of different media to ensure that the message is received by as many people as possible
within a short period of time. These may include:






Media warnings (by print, broadcast, online - including social media)
Telephone warnings to individual properties
Personal visit to property by police, emergency services members or Council
employees (door knock)
Predetermined warning device/s (e.g. horns or alarms)
Loudhailer or similar in the street
Liaison with partner agencies
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8.3
Roles and responsibilities for Council staff
Brisbane City Council has a duty of care to inform and warn residents who may, or will be, impacted
by an event. Although Council does not have a legislated responsibility to authorise evacuations,
messaging through the Crisis Communication team can mirror QPS evacuation messages.
Brisbane City Council has an obligation to tell residents where the location of evacuation centres are
at the time they are opened.
Within Council the Crisis Communication team in conjunction with the Lord Mayor’s Office (LMO) is
responsible for the dissemination of warnings to the public via the following methods:
 Liaising with the Contact Centre to write scripting for incoming calls
 Writing Lord Mayoral briefs for press releases
 Community Service Announcements
 Social media through Facebook and Twitter
 Letterbox drops
 Updating the corporate website
 Noticeboards
 Liaising with other agency media departments for consistent messaging
To support this dissemination of information, Council officers may be requested to assist with
letterbox drops and SES volunteers may be asked to assist the police with door knocking. Public
Address systems may be utilised as a method of informing the public.
The Incident Controller within the LDCC will authorise all content produced by the Crisis
Communications team before it is sent to the LMO for final approval. If the LDCC is not activated the
Manager, Disaster Operations or delegate will provide content to the Corporate Communications
team who will liaise directly with the LMO.
8.4
Notification to Council staff
Upon receiving warnings within Council about the need for evacuation, it is critical that all
stakeholders are notified. This is to ensure that response teams are placed on standby or activated.
The LDC will delegate this role to the Manager Community Lifestyle (as Evacuation Centre
Coordinator) or delegate.
The following internal stakeholders will need to be placed on standby:

Manager Community Lifestyle: this role will manage the function of Evacuation Centre
Coordinator and will be Council’s liaison to the evacuation centres. This role will have a
reporting function to the Brisbane LDMG and will coordinate staff resources deployed to
evacuation centres. This role will appoint the Council Evacuation Centre Facilities Manager
and the Bump in Bump out Coordinator.

Building and Maintenance Service: to open Council owned facilities and provide ongoing
facilities management support.

Manager Compliance and Regulatory Services: manages the function of Environmental
Health – to ensure health requirements are met – and City Safety Group – to assist with
setting up and arranging appropriate shelter for animals that have been evacuated.

Manager Inclusive Communities: this role will coordinate all volunteer requests for
assistance and donations.

Corporate Communications (Crisis Communications): to write and disseminate warning
messages and ongoing advice on the situation via the LMO.
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Other internal stakeholders may need to be activated dependent on the requirement at the time.
Examples include but are not limited to:
8.5

Rapid Response Group (also known as Rapid Assessment Team) for intelligence and
reconnaissance and door knocking if required

Brisbane Transport for the provision of buses

Councillors for their connection to the community

The Brisbane Metropolitan Transport Management Centre for road network advice and
updates and liaison with QPS on evacuation route control.
Notification to external stakeholders
Once all internal stakeholders are notified it is essential that all external stakeholders are also
notified so that they can be either on standby or activated.
The following agencies will be placed on standby or activated by the Evacuation Coordinator:
 Red Cross
 Queensland Police Service
 District Disaster Management Group
 Emergency Management Queensland
 Department of Communities, Child Safety and Disability Services
 Queensland Health
 Department of Public Works
 St John Ambulance Australia (Qld)
 Adventist Development & Relief Agency
 St Vincent de Paul
 Salvation Army
 Save the Children
 Department of Primary Industries and Fisheries
 Tzu Chi Australia, Brisbane
 Uniting Care (formerly Lifeline)
 Department of Health and Aging
Refer to Council’s Disaster and Emergency Management Event site for contact lists
Refer to the Evacuation SOP ‘standby/activation priority list – evacuation centres and roles
and responsibilities Appendix A’
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8.6
Warning process
Once a decision to relocate or evacuate people has been made, a warning will be issued by the
responsible authority. Concurrently, Council may be requested to provide assistance with the
evacuation.
It is essential that all information communicated to the public is clear, concise, consistent, accurate
and credible.
The Crisis Communications team will disseminate information to the public during the warning
phase. The following examples may be included in messaging:




















The issuing authority
The date and time of issue
The situation (what has happened/is likely to happen) and the need for evacuation due
to the risk
The area affected or likely to be affected
Expected duration for evacuation or staying indoors (sheltering in place)
How to reduce risk if people need to shelter in place
Advice on further sources of information for updates: e.g. radio or television broadcasts
Evacuation routes or access/egress issues
What evacuees should bring when they evacuate and what they are not allowed to bring
How evacuees should secure their home or premises when they leave
Advice on how to self evacuate
The location of evacuation centres (if known at this stage)
Transport or assistance arrangements (if supplied)
Any information on contact people or points
Any information relating to special needs evacuees
Pet care arrangements
Translation services (if supplied)
Not using phones unless absolutely necessary (to avoid congestion)
What is being done about the situation
When the next warning will be issued
It is important that warnings for special needs evacuees are implemented as early as possible so
that adequate time can be spent making arrangements for them.
People with special needs may include, but are not limited to, the following:











Aged/elderly
Mobility impaired
Hearing impaired
Visually impaired
Intellectual disabilities
Mental health disabilities
Oxygen dependent
Children
Non-English speaking
Nursing mothers
Those requiring the evacuation of pets
Where possible, it is important to emphasise that the best option for evacuees (particularly with
special needs) is to contact their own friends and family first to arrange short-term accommodation
and transport. This is vital as specialised accommodation and transport is not always going to be
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available dependent on the scale of the event, access issues and the need for resources. This
should be communicated via the Crisis Communications team as early as possible.
It is important to note that Queensland Health is not responsible for the transportation or
accommodation of special needs evacuees.
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9.0
WITHDRAWAL
Hazard
threat/
impact
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
The withdrawal phase is the physical movement of evacuees to a safer area.
Although the movement of evacuees is not directly a responsibility of Council, requests for the
movement of evacuees may be assisted by Brisbane Transport.
Note: Brisbane Transport buses may not be suitable for some special needs evacuees. Alternate
transport may need to be sourced.
Refer to the Evacuation SOP for a list of transport options for special needs evacuees
There are a number of considerations to make when managing the withdrawal of evacuees.
Refer to the Evacuation SOP ‘Consideration for the withdrawal of evacuees’
9.1
Traffic Management Strategy
The QPS will implement road closures as required.
Planning associated with the transport of evacuees (for self evacuation or assisted evacuation)
should keep in mind access to and egress from the evacuation centre(s). Aged Care facilities should
include access and egress routes into their plans.
The Brisbane Metropolitan Transport Management Centre (BMTMC) is a good source of intelligence
relating to access and egress of the road network. The BMTMC has access to a wide array of
information sources that can verify closures and delays to the road network. The BMTMC has
contacts with QPS who implement traffic management plans.
The Crisis Communication team should consult with the BMTMC prior to any information being
disseminated to the public relating to road closures.
In instances where withdrawal of evacuees affects Moreton Island, the Moreton Island Sub-plan and
SOP should be consulted. These outline evacuation arrangements for sheltering on the island, or
being transported from the island, including disembarkation and embarkation points.
9.2
Withdrawal of aged-care facilities
The Commonwealth Aged Care Act 1997 and associated standards and guidelines require
residential aged-care services to be actively working to provide a safe working environment and safe
systems of work to minimise disaster risks. This includes having a business continuity plan in place,
to exercise judgement in decision making and to take responsibility to protect the health and safety
of residents and staff. In view of this, residential aged-care services should:
 Have current disaster management plans in place that take into account local disaster
planning
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

Incorporate a comprehensive risk management approach taking an all hazards approach
Ensure all residents’ care plans are up to date, easily accessible and consider the needs of
the residents
 Communicate disaster management plans to relevant stakeholders e.g. family members and
related service providers
 Establish and maintain links to local disaster services
 Ensure all staff are trained in implementing the disaster management plan including
addressing individual resident’s needs (these efforts should include visiting staff, consultants
and volunteers)
 Understand the key issues in making decisions about whether to evacuate or stay on site
during disaster events.
Following the Commission of Inquiry recommendations, aged-care providers have access to a
business continuity planning resource for aged-care facilities (which includes evacuation planning).
This planning resource has been distributed to the Department of Health and Aging (DoHA),
Leading Aged Care Services and via the Emergency Management Qld website for aged-care
providers to use to update or create their own disaster management plans.
If further assistance is required by providers in the aged-care industry they can receive assistance
by any of the following (preferably in the following order):
1. 000 for life threatening events requiring immediate assistance (response dependent on
availability of resources)
2. Other providers in the aged-care industry through prior arrangements or agreements
3. Regular contact with DoHA who can request assistance via the LDMG
4. The LDCC via the Council Contact Centre on (07) 3403 8888, who will escalate the request
through the request for assistance process.
If required, DoHA can act as a liaison point for the aged-care sector. If the LDMG is activated, DoHA
can sit on this group and will advise the LDMG if there are any emerging issues, requests for
specialised assistance and support in relation to aged care, and can report back and prioritise
information to providers directly.
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10.0
SHELTER
Hazard
threat/
impact
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
The shelter stage refers to the provision of basic needs for affected people away from the immediate
or potential effects of the hazard. In this stage evacuation centres will be established.
Evacuation centres are established primarily for registration, emergency human services and shortterm emergency accommodation. Preferred solutions for short-term accommodation, in priority
order, are:

A destination of the person’s own choosing (relatives, friends etc.)

An established accommodation venue (hotel, motel, caravan park etc.)

An evacuation centre
In Council, as a guideline evacuation centres are established when numbers of evacuees requiring
accommodation exceed 50. In instances where there are less than 50 people requiring
accommodation it will be the responsibility of Council to arrange temporary accommodation through
established accommodation venues or alternatively contact ADRA for short-term accommodation
requests.
10.1 Responsibility for identifying evacuation centres in pre-planning
Council’s Disaster Operations staff will identify and register a range of locations suitable for use as
evacuation centres for a range of hazard types. BMS (for Council owned sites) and Environmental
Health will be engaged to conduct site audits for suitability and maintenance. Priority is to be given
to large and medium shelters in areas not susceptible to flooding.
The locations are to be entered into the evacuation centre register which is maintained by Disaster
Operations and accessed by the Evacuation Centre Coordinator and the LDCC.
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10.2 Evacuation centre audit process in pre-planning
Each of the identified evacuation centre sites is required to be audited annually by an Environmental
Health Officer (EHO) in consultation with BMS (for Council owned sites). The Red Cross audit tool is
based on the “Sphere Project Humanitarian Charter and Minimum Standards in Humanitarian
Response” and advice from the EHO on health standards which will support the audit process.
Refer to http://www.spherehandbook.org/
Auditing the evacuation centre register is to be reviewed and updated annually to ensure that
contact details for each site are still correct and that each facility is still willing to assist as a
designated evacuation centre.
10.3 Register of evacuation centres
The register of evacuation centres is to include:

An annotated map showing the location of possible evacuation centres

An annotated floor plan for each showing the proposed layout, the amenities and
logistic support facilities

Hazards affecting the site

An assessment of the numbers of people (optimum and maximum) that could be
accommodated at each location (for up to approximately 72 hours)

An estimate of the additional support required to operate the shelter for approximately
72 hours

The location of the keys

Contact details for the primary and secondary persons to contact for access in an
emergency

Access routes to/from the selected location

Signposting requirements

Animal Management suitability
Refer to the Evacuation SOP ‘Evacuation centre site summary’
This register will also be kept on Council’s Disaster Management intranet page.
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10.4 Principles of resource support
The following information has been supplied by the Department of Public Works to local councils to
optimise the resource support provided under the emergency supply function during an event.
1.
2.
Organisations are responsible for the acquisition of goods or services used as part of their core
business activities:

Where appropriate, organisations are to ensure existing supply and service
arrangements can be extended for use during disaster events to meet operational
imperatives.

The acquisition of goods or services obtained under permit or licence restrictions shall
remain the responsibility of the requesting organisation.

As part of good business practices, business continuity arrangements should be
developed to minimise disruptions caused by an impact on critical services.
Agencies are to seek support from the disaster management system for the acquisition of goods
or services when:

They are legitimately unable to do so themselves due to the impact on staff or systems

The resource is not available within the local area or through supplier network
arrangements

Required timeframes cannot be achieved without an alternative transport solution

They are overwhelmed by the scale of the event.
Options for the provision of support: As the functional agency for emergency supply, the Department
of Public Works (DPW) has a number of options available to support organisations with the
acquisition of goods or services to meet operational imperatives. These options will be governed by
those circumstances noted in point 2 above. The available options in order of priority are:

DPW locates the goods or services, obtains supplier contact details and forwards the
details to the requesting organisation to enable the placement of order(s) or for further
action as required.

DPW places an order on behalf of the requesting organisation and provides the supplier
with the contact and invoicing details of the organisation (if applicable to the supplier).

DPW incurs the cost and seeks reimbursement through the funding arrangements
activated for the event.
Important note from Department of Public Works (DPW):
Should the goods or services be deemed ineligible for reimbursement or other factors impede
DPW from recouping costs within a reasonable timeframe, cost recovery will be sought directly
from the requesting organisation.
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10.5 Establishing and operating an evacuation centre
Council is responsible for providing evacuation centres within its boundaries. There are two phases
in the planning process:
1) Pre-planning – proactively preparing for events
2) Activation – implementing the plan
The following list describes who is responsible within Council for establishing and operating an
evacuation centre at the pre-planning and activation phases.
Work Area
Disaster
Operations
Pre-planning responsibility
Working in partnership with the Manager,
Community Lifestyle to update and review
Sub-plans and SOPs
Identifying potential evacuation centre sites.
Manager
Community
Lifestyle
The Manager Community Lifestyle is
responsible for working in partnership with
Disaster Operations to update and review
SOPs to specify actions required to identify,
document, open, prepare and operate
evacuation centres.
Activation responsibility
Assist the Manager
Community Lifestyle and the
LDCC where needed with
advice and operational
support.
Coordination of all evacuation
centre requests through
Brisbane City Council.
Notifying other stakeholders of
the location, residual capacity
and readiness status of
evacuation centres.
Reporting to the LDMG on the
status of evacuation centres.
Liaising with the Red Cross
Centre Manager on the
progress of the evacuation
centre and any ongoing
requirements.
Manager
Inclusive
Communities
Preparing SOPs on volunteering and
donations.
Coordinates volunteers (nonSES) and donation
management.
Building and
Maintenance
Service
Condition auditing the individual Councilowned facilities annually as part of their
regular facilities audit process.
Corporate
Communication
Updating Crisis Communication manual with
templates on evacuation advice.
Providing facilities managers
to assist with the physical
opening of an evacuation
centre and to supply ongoing
facilities management support.
Issue evacuation advice
following the QPS notification
of evacuation.
Manager Compliance and Regulatory Services: accountable for the following two roles:
Environmental
Environmental Health audits.
Health advice and monitoring.
Health
City Safety
Reviewing content in the plan and
Coordinating the provision of
SOP in relation to animal
emergency shelter for animals.
management.
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10.6 Establishing an evacuation centre
The decision to open evacuation centres will be made by the LDC or the Brisbane LDMG (if
activated) in consultation with the District Disaster Coordinator (DDC).
Once a decision has been made to open evacuation centres the Manager Community Lifestyle will
be notified.
The Manager Community Lifestyle will then assume responsibility as the Evacuation Centre
Coordinator and will coordinate the establishment of centres, as well as be Council’s liaison to the
Red Cross Evacuation Centre Manager. The Evacuation Centre Coordinator will also liaise with the
LDCC Controller on an as needs basis to inform the LDCC of the ongoing status of the centres.
Disaster Operations staff may be requested by the Evacuation Centre Coordinator to assist in the
establishment and ongoing support of the centres. Council staff may be required to assist on an as
needs basis within the evacuation centres.
The Evacuation Centre Coordinator will notify the Red Cross of the broad area and approximate
number of evacuees required in the evacuation centre.
The Evacuation Centre Coordinator will identify appropriate evacuation centres from the register to
be opened, based on the nature and extent of the disaster, prevailing and forecast weather
conditions and anticipated numbers and duration. They will also provide updates for the LDCC
situation report as required.
Refer to the Evacuation SOP ‘How to choose an appropriate site checklist’
The Evacuation Centre Coordinator will activate the Bump in Bump out SOP and will activate staff to
begin the Bump in process.
Refer to the Bump in Bump out Standard Operating Procedure in the Evacuation SOP
The Evacuation Centre Coordinator will notify the DDC and designated agencies of the probable
need for emergency human services (registration, personal support, first aid, material aid, catering
and short-term accommodation).
Refer to the Evacuation SOP ‘Establishing an evacuation centre SOP’
The roles within the evacuation centre will report as follows:
LDCC – EHSOT
Coordinator
Evacuation
Centre
Red Cross Centre Manager
Red Cross Centre Management Team
BCC Evacuation
Manager
Centre
Facilities
TLs, visiting support agencies etc.
Bump in and Bump out Coordinator +
Bump in Bump out team
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The Red Cross Evacuation Centre Manager is to:

Clarify the requirement

Deploy with the Red Cross Evacuation Kit

Complete an opening inspection of the evacuation centre with the facilities manager.
This will be via BMS for Council-owned sites or the facility owner of privately owned
sites.

Notify the Evacuation Centre Coordinator – in particular, when open, when fully
operational and when at capacity

Provide situation reports on status (including security)

Progressively hand over functions to responsible support agencies
10.7 Operating an evacuation centre
Council is the responsible entity for identifying suitable sites, supported by philanthropic, charity and
community organisations.
The responsibility for operating evacuation centres is exercised between the Red Cross Evacuation
Centre Management Team (for evacuee management) and with Brisbane City Council for facility
and resource management as soon as possible.
Specialist tasks such as registration, medical support, facilities management, catering and animal
management are to be taken over by appropriately trained persons as soon as possible.
Red Cross, in accordance with their standard operating procedures and the memorandum of
understanding with Brisbane City Council, will:

Assist with the establishment of the evacuation centre

Manage the welfare of evacuees

Register evacuees

Provide emergency human services
Security is the responsibility of the QPS, a request for QPS support will be made by the Evacuation
Centre Coordinator through the District Disaster Management Group as a matter of priority. QPS
may be supported by contracted security service officers who can be sourced via BMS.
10.8 Roles and responsibilities of agencies in evacuation centres
Broad responsibilities for each of the roles are explained in the Evacuation SOP which can be found
on Council’s intranet.
10.9 Setting up an evacuation centre
The Red Cross Evacuation Centre Management Team in conjunction with Council’s Evacuation
Centre Facilities Manager and Bump in Bump out Coordinator will lead the set-up of the evacuation
centre. It will be the responsibility of each individual agency to bring their own resources and to set
up their own space.
A procedure for the bump in bump out process has been established based on Red Cross
guidelines. See Bump in Bump out Standard Operating Procedure in the appendix of the Evacuation
SOP.
Agencies are expected to understand their own requirements for staffing, equipment, size of working
area, communication equipment/needs and external support.
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Because each site is potentially going to be different for each event, it is important that during the
set-up stage agencies physically co-locate close to like agencies (e.g. reception, triage and personal
support). This is to ensure the most efficient approach for processing evacuees. It is also important
to be mindful of setting up in locations within the facility that are accessible for special needs
evacuees.
10.10 Set-up considerations
There are a number of considerations to make when setting up an evacuation centre. The following
points suggest some key considerations:
1
Safety and security
A safe physical environment, workplace health and safety and safety
of equipment. Managing the security of the facility.
2
Access
Ease of access to enable efficient processing of evacuees. Ready
access to facility from road/car park. Traffic management should be
considered.
3
Communication
Communication externally, internally between agencies, with/between
evacuees. Provision of communication facilities for evacuees.
4
Information
Dissemination and updates between agencies and to evacuees or
the general public wanting information on the disaster event.
5
Facility standards
Standards meet community expectations and are appropriate for use.
The facility has suitable and sufficient equipment for the intended
requirement (identify any shortfalls).
6
Privacy
Privacy for service providers (individual counselling).
Prayer areas for cultural needs.
7
Breakout area for
providers
Provision of a separate area exclusively for use by the service
providers.
8
Visibility
Well signed with all services readily visible. Use of reception staff as
guides if necessary. Consider the provision of maps of the centre.
9
Location of
services
Ensure inter-dependent services are located near each other.
Separate non-compatible services.
10 Managing
escalating demand
10.11
Early identification of facility’s capacity and when this will be
exceeded.
Other factors when setting up an evacuation centre
Where possible, keep family groups together for mutual support and security. Ensure that if family
members need to be moved for special needs reasons that they are located in close proximity to the
rest of the family.
Special needs groups may have special requirements to assist them with physical support, linguistic
support and cultural needs. These groups need to be identified early by the Evacuation Centre
Management Team and appropriate provisions made.
Where possible provision needs to be made for pets at or near evacuation centres. See Provision of
Animal Management in the Evacuation SOP for further details.
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10.12 Volunteer management (of non-SES persons) and donations management
Volunteers will present themselves during times of crisis to offer their assistance and to donate
goods. In order to effectively coordinate this process, the Manager Inclusive Communities (or
delegate) will take on the role of Volunteer Coordinator.
A list of all key strategies, actions and responsibilities is found in Evacuation SOP Section 3.11,
Volunteer and Donations Management.
Ad hoc volunteering requests made direct to the evacuation centres will be managed by the
Evacuation Centre Management Team in accordance with their strategy for the management of
spontaneous volunteers.
10.13
Handing over an evacuation centre to oncoming staff
A Red Cross member is to be appointed as the evacuation centre manager and is to retain overall
responsibility for that evacuation centre while on shift. The manager will be appointed and
appropriately trained by Red Cross as a member of the Red Cross Evacuation Centre Management
Team.
The management of the centre may be handed over:

To the Red Cross Evacuation Centre Management Team and subsequent shifts

To another agency (e.g. a Queensland Government officer)
In each case, a comprehensive briefing is to be prepared and the formal handover is to be recorded
and signed off by the outgoing and incoming centre managers in accordance with Red Cross
procedures.
Incoming evacuation centre staff are to be briefed on the aspects which directly affect them.
Outgoing evacuation centre staff are to be provided with:
10.14

An immediate opportunity to provide information/feedback (debrief)

Where applicable:

A date and time set for a formal debrief

The date and time of their next shift
Pets and animal welfare
It is a recognised fact that people will be reluctant to abandon pets in times of disaster. To ensure
the safety and emotional support of all people it is critical to have an animal management plan in
place for evacuations.
Domestic animals
A decision to evacuate people brings with it the issue of the evacuation of domestic animals and
pets. These animals may be evacuated provided their evacuation does not endanger human life and
can be accomplished with safety.
Where practical, animals are to be co-located with their owners, subject to the agreement of the
evacuation centre manager and site owner. Where this is impractical, Council Animal Shelters and
the RSPCA will endeavour to provide emergency shelter in existing animal facilities.
If animals are to be housed on site at evacuation centres, additional resources need to be brought in
for tethering purposes, feeding, waste removal and cages.
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Refer to Evacuation SOP ‘Provision of animal management’
10.15
Responsibilities
Council has a limited capacity to provide accommodation for domestic animals at the animal
shelters.
Council’s Compliance and Regulatory Service Branch is responsible for coordinating the provision of
emergency shelter for animals.
The Crisis Communication team is to notify the public of which activated evacuation centres allow
pets, what to bring, what the owner’s responsibilities are and what type of pets are allowed. Exotic
pets (e.g. snakes, rodents etc.) or farm animals may not be accepted at evacuation centres.
10.16 Animal Shelters
Although animal management and shelter services are outsourced to Lost Dog Homes the contract
includes provisions for the contractor in partnership with Council to do the following:

Plan for possible disaster events

Provide for increased capacity (e.g. collapsible cages)

Provide resources to assist at shelter sites
Council is a signatory to a Memorandum of Understanding (MOU) which also provides commitments
of assistance from all neighbouring South East Queensland Councils.
Animal shelters are located in the following locations:
Warra Animal Shelter
(07) 3667 6040
Telegraph Road, Bracken Ridge
Willawong Animal Shelter
(07) 3407 1242
501 Gooderham Road, Willawong
Capacity of the shelters to house animals temporarily during an emergency will be dependent on the
capacity of the facility and if the facility itself has been affected.
10.17
Coordinating animal evacuations
Council's Compliance and Regulatory Service Branch will provide a liaison officer to the evacuation
centre(s) to coordinate the evacuation of domestic animals and pets. City Safety or Rapid Response
Group officers may be attached to SES teams and the QPS for the purposes of effecting animal
evacuations.
Refer to Evacuation SOP ‘Provision of animal management SOP’
10.18
Legislative role for animal management
State Government’s Legislative role
Biosecurity Queensland (BQ), a service of the Department of Agriculture, Fisheries and Forestry, is
the government's lead agency for animal welfare activities in Queensland. BQ administers the
Animal Care & Protection Act 2001 and enforces the Act in partnership with the RSPCA.
BQ works closely with the RSPCA in delivering animal welfare services throughout the state and has
a formal agreement with the RSPCA for the enforcement of the Act. Under this agreement, the
RSPCA has the primary responsibility for companion animals and BQ has primary responsibility for
commercial livestock.
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BQ also administers a range of other legislation including the Stock Act 1915 which requires the
compulsory registration of properties running livestock and allocation of a Property Identification
Code to individual properties.
BQ is the government agency responsible for managing the regulation of native and exotic exhibited
and demonstrated species in Queensland. BQ will ensure that exhibited and demonstrated animals
are:
 afforded high standards of welfare and are treated humanely
 contained in a way that does not pose a pest risk
 managed to minimise the risks to public safety
In Queensland, three main pieces of legislation ensure that exhibited animals meet community
expectations:



The Animal Care and Protection Act 2001 (ACPA). This legislation promotes the responsible
care and use of animals through a strong focus on education. It places a legal duty of care
on those in charge of animals to provide for those animals' needs in an appropriate way.
The Land Protection (Pest and Stock Route Management) Act 2002 (LPA). This legislation
governs actions for the control and management of declared plants and animals in the state.
A number of species exhibited in Queensland are declared animals and are held and
exhibited under a declared Pest Permit including zoos, film and television, circuses and
magicians.
The Nature Conservation Act 1992 (NCA). Persons are required to hold licences, permits or
authorities to take, keep and use many native animals. A Wildlife Exhibitor Licence or a
Wildlife Demonstrator Licence is required to exhibit, demonstrate or use protected,
international or prohibited wildlife.
BQ works closely with the RSPCA Qld in responding to animal welfare emergency situations in
natural disasters and has a role in providing advice to local governments in the development of
natural disaster response plans.
BQ has representation at the State Disaster Management Group level and provides high level
biosecurity and animal welfare advice during natural disaster events. Biosecurity Queensland also
plays a role in providing appropriate advice at the district and local disaster management group
levels.
The Animal Care and Protection Act 2001 promotes the responsible care and use of animals
through a strong focus on education. It places a legal duty of care on those in charge of animals to
provide for those animals' needs in an appropriate way and is administered by Biosecurity
Queensland.
10.19 RSPCA’s role
Appropriate RSPCA Queensland staff have powers under the Animal Care and Protection Act
administered by BQ.
RSPCA Queensland works closely with BQ regarding wildlife rescue and rehabilitation and with local
government regarding companion animal issues.
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11.0
RETURN
Hazard
threat/
impact
DECISION
STAGES OF EVACUATION
WARNING
WITHDRAWAL
SHELTER
RETURN
The return of evacuees is the final stage of the evacuation process. At this stage the impact of the
event is being assessed and a determination is made as to whether evacuees can return home or
are assisted through the recovery process.
The return phase is when Brisbane City Council hands over responsibility to Department of
Communities, Child Safety and Disability Services (DCCSDS) for long-term recovery.
The Crisis Communication team will liaise with QPS to advise the public when it is safe to return to
an area; given not everyone affected by the event will be in an evacuation centre.
11.1 Roles and responsibilities
The Evacuation Centre Coordinator will liaise with Red Cross, the Evacuation Centre Facilities
Manager and DCCSDS to establish the need for stand down and to discuss stand down strategies
in consultation with the Brisbane LDMG. The Evacuation Centre Coordinator will be responsible for
determining the end date of operation of the evacuation centre(s).
A decision to stand down will be based roughly on the continued uptake of evacuees presenting and
natural attrition within the centres.
The Evacuation Centre Facilities Manager will activate the bump out process in coordination with
Red Cross and the Bump in Bump out Coordinator. (See Bump in Bump out Standard Operating
procedure in the Evacuation SOP).
DCCSDS will provide outreach services as soon as possible. This will allow DCCSDS to make early
assessment of the current and ongoing human and social recovery needs to inform recovery service
delivery modelling.
A liaison officer from DCCSDS will also be located within the LDCC to work closely with the
Evacuation Centre Coordinator. This role will closely monitor and make assessment on the
suitability of stand down and transitional strategies to the recovery phase.
The liaison role will provide communication from the LDCC through to the DCCSDS Regional
Coordination Centre which has the responsibility of lead agency for human and social recovery as
well as administration of the Personal Hardship Scheme under the Natural Disaster Recovery and
Relief Arrangements (NDRRA).
NDRRA Guidelines reference point:
http://www.disaster.qld.gov.au/publications/pdf/QLD%20Disaster%20Relief%
20Recovery%20Arrangements%20Guidelines%202009-2010.pdf
.
Important note: Recovery centres may be established simultaneously with evacuation centres and
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are not necessarily co-located at the same facility.
11.2 Considerations
It is critical that communication with evacuees in evacuation centres continues into the return phase.
This is particularly important in relation to whether areas are suitable for their return.
If areas continue to be unsafe due to the extent of the damage this will determine if evacuees will
need long-term accommodation in the recovery phase.
The LDCC in consultation with agencies such as QPS and QFRS may be able to assist by providing
information to the Evacuation Centre Management Team on the status of affected areas and the
suitability for evacuees to return home.
It will be a responsibility of the Evacuation Centre Management Team to display information relevant
to the recovery needs of the evacuees.
Where possible, utilise local business for resupply and assistance in the return phase and to link to
recovery.
11.3 Closure of evacuation centres
The closure of the evacuation centres is the responsibility of the designated Red Cross Evacuation
Centre Manager at the time of the declaration, assisted by the Evacuation Centre Facilities
Manager, the Bump in Bump out Coordinator and team and other agencies and organisations
providing services within the centre.
For Council-owned sites, BMS will provide assistance for the provision of rubbish removal, the
reconditioning of the site, the return of borrowed Council goods and the physical closure of the
building.
For privately owned sites, it will be the responsibility of the Evacuation Centre Manager to liaise with
the building owner or facility manager to close the physical site. Reconditioning of the site will be the
responsibility of the agencies present to ensure that the site is returned to its previous condition.
Individual arrangements will need to be made with the provider for the return of borrowed goods.
Rubbish removal will need to be coordinated with the site owner’s existing arrangements. BMS may
provide assistance for rubbish removal.
If large amounts of rubbish need to be removed that cannot be done effectively through the usual
rubbish removal arrangements, the LDCC can be contacted for assistance.
For more details on the Bump in Bump out process see Bump in Bump out Standard Operating
procedure in the Evacuation SOP.
11.4 Debrief
Debriefs are to be conducted at each centre.
Centralised debriefs for all Council elements will be coordinated by the MDO.
A debrief checklist is contained in the Evacuation SOP.
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Insert
reference
no here
APPENDIX 1: EVACUATION CENTRE AUDIT CHECKLIST
Information Brief: [insert name & address]
Contents
USE OF THIS SITE DECISION POINTS
2
SITE DETAILS
3
AMENITIES
3
ACCESS/PARKING
3
COOKING & FACILITIES
4
ADMINISTRATION & EQUIPMENT
4
Animal Management
4
Attachments
Attachment 1: Site Photos
Attachment 2: UBD Map
Attachment 3: Site Floor Plans
5
6
7
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Site summary
[Delete symbols and boxes that are not relevant to each site]
Suitable as an Assembly area (temporary
holding area under 8 hrs)
Suitable as an Evacuation centre
(over 8 hours)
Number……………..
Number……………
Hazard affecting this site = East Coast
Low/Cyclone
Hazard affecting this site = Bush Fire
Hazard affecting this site = Flood/Storm
Surge
Suitable as an assembly area for large
groups over 100 people for a threat (e.g.
bomb threat)
Suitable for animals
YES
NO
Key considerations influencing use of site
 List here
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Site details
Name of property
Street no.
Street name
Suburb
Postcode
UBD location
Number of people
Property Manager (PM)
PM b/h phone
Alt PM-1
Alt PM-1 phone
BCC region
Ownership category
Size category
Insurance coverage
Number of useable rooms
Dimensions of useable
rooms (floor space)
Leased areas associated
with site
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Amenities
No of facilities
No of people
Toilets: Female
Toilets: Male
Toilets: Male urinals
Toilets: Disabled
Showers: Female
Showers: Male
Showers: Disabled
Showers: Communal
Fire safety equipment
Fire evacuation plan
Access/parking
Vehicle access
QAS access
Disabled access
Off street parking
Signage/signposting
Ratios:
Base your choice for this site from the following ratios which are based on international standards for evacuation centres.
Showers
1 shower per 50 people
Basins
1 basin per 20 people
Toilets
1 toilet per 20 people
Floor space
1 person per 3.5m² (for accommodation purposes)
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Cooking and facilities
Domestic/commercial
kitchen standard
Refrigerator/cold
rooms/freezers
Cooking facilities
Cutlery sets
Crockery sets
Glasses
Dining facilities
Canteen
Chairs: Adult
Chairs: Children
Tables
Beds
Laundry
First aid equipment/room
Sports equipment
Television/VCR
Entertainment equipment
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Administration and equipment
Photocopier
Fax
Telephones
Computers
Modem
Intercom/public address
Auxiliary power
Additional information
Animal management
Site fenced
Size of fenced area
Undercover space
Outdoor space
Access to water
Notes:
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ATTACHMENT 1: SITE PHOTOS
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ATTACHMENT 2: [INSERT SITE NAME] - UBD MAP
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ATTACHMENT 3: SITE FLOOR PLANS
HIGHLIGHT WHICH SPACE IS USEABLE
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APPENDIX 2: ACRONYMS AND ABBREVIATIONS
ADRA
Adventist Development & Relief Agency
BMS
Building and Maintenance Services
BQ
Biosecurity Queensland
Brisbane LDMG
Brisbane Local Disaster Management Group
Council
Brisbane City Council
CSA
Community Service Announcement
CSC
Community Support Centre
DCCSDS
Department of Communities, Child Safety and
Disability Services
DDC
District Disaster Coordinator
DISOPS
Disaster Operations
DoHA
Department of Health and Aging
DPW
Department of Public Works
EHO
Environmental Health Officers
EHSOT
Emergency Human Services Operational Team
EMA
Emergency Management Australia
EMQ
Emergency Management Queensland
LDC
Local Disaster Coordinator
LDCC
Local Disaster Coordination Centre
LGA
Local Government Area
LMO
Lord Mayor’s Office
MDO
Manager, Disaster Operations
NSP
Neighbourhood Safer Places
PSPA
Public Safety Preservation Act
QFRS
Queensland Fire and Rescue Service
QPS
Queensland Police Service
SOP
Standard Operating Procedure
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APPENDIX 3: BRISBANE INCIDENT MANAGEMENT SYSTEM
Page 48 of 48
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