BRISBANE CITY COUNCIL
LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2:
BRISBANE CBD EMERGENCY PLAN
July 2014 edition
BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – CBD EMERGENCY PLAN
FOREWORD – Brisbane CBD
Brisbane is a vibrant, progressive city spanning the winding Brisbane River on Australia’s east
coast. Covering an area of 1387 square kilometres, Brisbane is renowned for its mild, subtropical
climate and relaxed, friendly lifestyle.
The Brisbane Central Business District (CBD) is a dynamic commercial, residential and
entertainment precinct. It is the business centre for many large companies, state and local
government agencies, the legal system and the Queensland University of Technology – each
drawing large numbers of people to the CBD daily.
Brisbane is the third most populous city in Australia and is a much loved destination for millions of
visitors every year. Its population is proudly a cultural melting pot. More than one in four Brisbane
locals were born overseas and more than 14% speak a language other than English at home with
Mandarin, Vietnamese, Cantonese, Italian and Samoan being some of the most commonly spoken
languages.
Brisbane’s CBD is home to around 10,000 residents and 150,000 employees, and is projected to
grow rapidly over the next 20 years. A vibrant city centre is fundamental to the success of
Brisbane’s economy and culture along with efficient transport systems to keep the city centre
functioning well.
Table 1: City of Brisbane at a glance
City of Brisbane at a glance1
CBD Total
Estimated residential population
9,391
Workers 6.30 am
7.30 am
8.30 am
9.30 am
11.30 am
10,000
30,000
80,000
120,000
150,000
Students
15,000
Average night time visitors
15,000 per night
Average overnight visitors
9,000 per day
AM Peak: Estimated persons travelling by vehicle to/through the CBD, by main roads
(2012)
14,740 People
PM Peak: Estimated persons travelling by vehicle to/through the CBD, by main roads
(2012)
10,224 People
AM Peak: Estimated persons travelling by train into/through the CBD (2012)
16,938 People
PM Peak: Estimated persons travelling by train into/through the CBD (2012)
2,810 People
AM Peak: Estimated persons travelling by buses into/through the CBD by main roads
and busway (2012)
12,479 People
PM Peak: Estimated persons travelling by buses into/through the CBD by main roads
and busway (2012)
3,159 People
1
Brisbane City Council’s Transport Planning & Strategy and Economic Development
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
The following map (Diagram 1) shows the CBD boundary for the purposes of this plan. Should an
evacuation be required, the boundary may apply to an area broader than this perimeter.
Diagram 1: CBD Boundary
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
Review of Plan
This plan has been developed by, and with the authority of, Brisbane City Council pursuant to
Sections 57 and 58 of the Queensland Disaster Management Act 2003. The plan conforms to the
State Plan guidelines. Section 80(1) (b) of the Act requires Council to approve its Local Disaster
Management Plan and the underpinning CBD Emergency Plan.
The Brisbane CBD Emergency Plan has been reviewed and accepted.
………………………………………………………….….
Peter Martin
……………………………….
Date
Assistant Commissioner, Queensland Police Service
District Disaster Coordinator
Authority to Plan
Brisbane City Council has a legislative responsibility to develop a Local Disaster Management Plan
in accordance with Section 57(1) of the Disaster Management Act 2003. The Brisbane City Council
Local Disaster Management Plan and CBD Emergency Plan have been prepared under the
direction of the Brisbane Local Disaster Management Group.
The Brisbane CBD Emergency Plan is approved and recommended for distribution.
………………………………………………………….….
……………………………….
Graham Quirk
Date
LORD MAYOR Brisbane City Council
Chair, Brisbane City Local Disaster Management Group
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
EXECUTIVE SUMMARY
The CBD Emergency Plan (the Plan) was originally developed in 2007 with a review of the Plan
conducted in 2012 in consultation with relevant agency groups. The Plan provides the framework
for a coordinated multi-agency and community crisis response to a significant event occurring
within the Brisbane CBD and is supported by a number of sub-plans. It adopts an all hazards
approach that focuses on the safety of people during an incident.
The Plan was prepared in partnership with relevant government and non-government stakeholders
including Brisbane City Council, Queensland Police Service and other key relevant agencies.
The Plan sits within the Brisbane City Council’s Local Disaster Management Plan and will be
reviewed, practised and updated annually in accordance with the procedures mandated by the
Brisbane Local Disaster Management Group (LDMG). It is provided as a guideline to be followed,
refreshed and reviewed as necessary.
The involvement and preparedness by a variety of government and non-government agencies and
community members will enhance the responses under this Plan. The roles and responsibilities of
these agencies and the community have been established during the engagement process. QPS
will be the lead agency in the event of an emergency situation. Should the incident involve the
implementation of the State Chemical/Hazardous Material (HAZMAT) Plan by Queensland Fire
and Emergency Services (QFES), QFES will be responsible for the safety of the site.
The response to an emergency situation or incident that impacts on the CBD may be the result of
an Act against the State, a non-natural disaster or a natural disaster.
The initial response to an incident will focus on the following aspects:





Prevention of loss of life and serious injury;
Gathering of information so as to deliver an appropriate response;
Evacuation of people who are at immediate risk;
Activation of resources and deployment to the incident site; and
Establishing command and control of the incident site.
The activation of the CBD Emergency Plan will be a decision made by either the District Disaster
Coordinator, the Chair of the Local Disaster Management Group, the Local Disaster Coordinator or
the Queensland Police Service District Officer for Brisbane Central District.
As the response to an emergency situation may be different for each event, a range of options may
be considered. The CBD Boundary has been divided into sectors to allow for the plan to be
scalable and flexible to cater for either a sector evacuation or a full evacuation. Should a mass
evacuation be required, agencies will follow the five distinct evacuation stages according to the
Evacuation Plan of the Brisbane Local Disaster Management Plan.
Emergency Support Sites adjacent to the CBD have been identified as suitable for the temporary
management of large numbers of persons who have been evacuated from within the city.
The following areas have been identified as potential sites:




South Bank Parklands
Brisbane Convention & Exhibition Centre
Suncorp Stadium
RNA Showgrounds
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
AMENDMENTS AND REVIEW
This CBD Emergency Plan will be reviewed, practised and updated annually in accordance with
the procedures mandated by the Brisbane LDMG. Contact details will be reviewed and updated
regularly by the Manager, Disaster Management Office (MDMO).
It is to be reviewed:



On activation of an event requiring the use of this plan
On activation of similar disaster management plans in other states, territories or
overseas where considered possible
Upon annual review of Brisbane City Council’s Local Disaster Management Plan in
accordance with the Disaster Management Act 2003 (Qld).
This plan, together with its supporting standard operation procedures (SOPs), is to be reviewed
and tested in full or part annually. The MDMO is to brief the Brisbane LDMG on the results of
testing this plan.
The Local Disaster Coordinator (LDC), MDMO or suitable Brisbane City Council (BCC) officer will
approve minor amendments to this plan. Where possible, consultation will occur with the
Queensland Police Service (QPS) and key external agencies.
Proposed amendments that affect the intent of this plan, roles and responsibilities or external
agencies must be endorsed by the Brisbane LDC in consultation with the Brisbane District Disaster
Coordinator (DDC) and approved by the Chair of the LDMG. This type of amendment is referred to
as a major amendment.
Approved amendments are to be listed in the table below. The Disaster Management Office is to
ensure that all copies of this plan are accurately amended.
Complete the amendment record below when authorised changes are made to this emergency
plan.
Version
Date
Approving Authority
Amendment
Number
0.1
December 2012
QLD Police Service (QPS)
Initial Draft
0.2
January 2013
Local Disaster Coordinator (LDC)
Updated Plan
0.3
February 2013
Brisbane City Council Establishment & Coordination
Committee (E&C)
Updated Plan
0.4
February 2013
Local Disaster Management Group (LDMG)
Updated Plan
0.5
May 2013
District Disaster Coordinator (DDC)
Updated Plan
V1
June 2013
Chair, Local Disaster Management Group (LDMG)
Final Plan
1.1
March 2014
Manager, Disaster Management Office
Updated Plan
Table 2: Version Control
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
LEGISLATIVE FRAMEWORK
Table 3 summarises a comprehensive, but not exhaustive, list of the many interrelated documents
that provide authority for this Plan.
References
A.
Disaster Management Act 2003 (Qld), effective 21 May 2014 (the Act)
B.
Queensland Local Disaster Management Planning 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 (Qld)
Table 3: Plan reference list
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
TABLE OF CONTENTS
FOREWORD – Brisbane CBD…………………………………………………………………………… i
Review of Plan……………………………………………………………………………………………. iii
Authority to Plan………………………………………………………………………………………….. iii
EXECUTIVE SUMMARY…………………………………………………………………………………iv
AMENDMENTS AND REVIEW…………………………………………………………………………..v
LEGISLATIVE FRAMEWORK………………………………………………………………………….. vi
1.0 INTRODUCTION……………………………………………………………………………………..1
1.1
Purpose…………………………………………………………………………………………. 1
1.2
Scope……………………………………………………………………………………………. 1
1.3
Objectives………………………………………………………………………………………..1
1.4
Assumptions……………………………………………………………………………………. 2
1.5
Linkages with other Plans……………………………………………………………………...2
1.6
Approval………………………………………………………………………………………….3
1.7
Custodian……………………………………………………………………………………….. 3
2.0 ROLES AND RESPONSIBILITIES…………………………………………………………………4
2.1
Lead Agency……………………………………………………………………………………. 4
2.2
Support Agencies………………………………………………………………………………. 4
2.2.1 Brisbane City Council (Council)………………………………………………………………. 4
2.2.2 Queensland Fire and Emergency Services (QFES)……………………………………….. 4
2.2.3 Department of Communities, Child Safety and Disability Services………………………. 5
2.2.4 Brisbane Metropolitan Transport Management Centre (BMTMC)………………………... 5
2.2.5 Department of Transport and Main Roads (TMR)………………………………………….. 5
2.2.5.1
Metro Road Operations…………………………………………………………………...5
2.2.5.2
TransLink…………………………………………………………………………………...6
2.2.6 Queensland Rail………………………………………………………………………………...6
2.2.7 Australian Red Cross………………………………………………………………………….. 6
2.3
Community……………………………………………………………………………………… 6
2.3.1 Residents……………………………………………………………………………………….. 6
2.3.2 Workers…………………………………………………………………………………………. 6
2.3.3 Visitors…………………………………………………………………………………………... 7
2.3.4 Students………………………………………………………………………………………….7
2.3.5 Building managers……………………………………………………………………………... 7
2.3.6 Fire wardens……………………………………………………………………………………. 7
2.3.7 Child care centres……………………………………………………………………………… 7
2.3.8 Education facilities……………………………………………………………………………... 7
3.0 ACTIVATION………………………………………………………………………………………… 9
3.1
Disaster Management Levels of Activation…………………………………………………. 9
3.2
Activation Process………………………………………………………………………………9
3.2.1 Advice of Incident…………………………………………………………………………….. 10
3.2.2 QPS Command Provides Advice…………………………………………………………… 10
3.2.3 Advise CBD Emergency Plan Stakeholders………………………………………………..10
3.2.4 Decision to activate plan……………………………………………………………………...10
3.2.5 Activate CBD Emergency Plan and Sub-plans……………………………………………. 10
3.2.6 Advise Community & Stakeholders………………………………………………………….10
3.2.7 Risk assessment……………………………………………………………………………… 10
3.2.8 Stand Down…………………………………………………………………………………… 10
4.0 SUB-PLANS…………………………………………………………………………………………12
4.1
Plan Structure…………………………………………………………………………………. 12
4.1.1 Traffic Sub-plan……………………………………………………………………………….. 12
4.1.2 Public Transport Sub-plan…………………………………………………………………… 12
4.1.3 Public Information Sub-plan…………………………………………………………………. 12
4.1.4 Human Services Sub-plan…………………………………………………………………… 13
4.1.5 Infrastructure and Utilities Sub-plan………………………………………………………… 13
4.1.6 Safety and Security Sub-plan……………………………………………………………….. 13
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
4.1.7 Intelligence and Rapid Damage Assessment (RDA) Sub-plan………………………….. 13
5.0 INCIDENT STAGES……………………………………………………………………………….. 14
5.1
Business as Usual……………………………………………………………………………. 14
5.2
Shelter in Place……………………………………………………………………………….. 14
5.3
Immediate Evacuation……………………………………………………………………….. 14
6.0 EVACUATION STAGES………………………………………………………………………….. 16
6.1
Decision to Evacuate………………………………………………………………………… 17
6.2
Warning……………………………………………………………………………………….. 17
6.3
Withdrawal…………………………………………………………………………………….. 17
6.4
Shelter…………………………………………………………………………………………. 18
6.5
Return………………………………………………………………………………………….. 18
7.0 EMERGENCY SUPPORT SITES………………………………………………………………... 19
8.0 ACRONYMS, ABBREVIATIONS AND DEFINITIONS………………………………………… 20
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
1.0
INTRODUCTION
The Brisbane CBD Emergency Plan (the Plan) was originally developed in 2007. A review of this
plan was conducted in 2012 and provides the framework for crisis response to a significant event
occurring within the Brisbane CBD. The Plan was prepared in partnership with relevant
government and non-government stakeholders including BCC, Queensland Police Service (QPS)
and other key relevant agencies.
Governance for development of the plan has been provided by the CBD Emergency Plan
Committee with representatives including:

Brisbane City Council

Queensland Police Service

Department of Communities, Child Safety and Disability Services

Department of Transport and Main Roads

Department of Community Safety
Sub-plans and Standard Operating Procedures (SOPs) have been prepared by each relevant
agency in partnership with relevant stakeholders. This plan is a guide and should not be read in
isolation. It complements other agency SOPs and includes the following sub-plans:

CBD Traffic Sub-plan

CBD Public Transport Sub-plan

CBD Public Information Sub-plan

CBD Human Services Sub-plan

CBD Infrastructure & Utilities Sub-plan

CBD Safety & Security Sub-plan

CBD Intelligence and Rapid Damage Assessment Sub-plan
1.1
Purpose
The purpose of this plan is to establish a framework for a coordinated multi-agency and community
response to a significant incident or emergency.
1.2
Scope
The scope of this plan is to ensure appropriate strategies are developed and established to
minimise the adverse effects of a disaster or major emergency in the Brisbane CBD. The Plan
adopts an all hazards approach that focuses on the safety of people during an incident. The Plan is
to be read and activated in conjunction with other crisis management plans.
1.3
Objectives
The key objectives for the Plan are to:

Provide the framework for a multi-agency response to a significant emergency incident
within the CBD

Ensure the community is resilient and informed to make decisions about their own
wellbeing in the event of an emergency

Increase government and community preparedness
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1

Provide members of the community affected by the significant incident with:
 Timely advice
 The safest possible environment during the resolution of the incident
 Emergency relief and support
 Transport and traffic arrangements where possible
1.4
Assumptions
The Plan assumes:




1.5
Emergency management arrangements in place adequately address State responsibilities
as required under the Disaster Management Act 2003 (Qld) and Queensland’s disaster
management arrangements in relation to response and recovery;
All buildings in the CBD have in place an accurate and practised Fire and Emergency Plan;
Emergency management agencies have in place effective operational plans, standard
operating procedures or similar that detail the specific responses of that agency in support
of the Plan; and
That stakeholder agencies have sufficient trained and equipped personnel to perform the
roles and responsibilities identified in the Plan.
Linkages with other Plans
The CBD Emergency Plan sits within Brisbane City Council’s Local Disaster Management Plan,
prepared under the terms of the Disaster Management Act 2003 (Qld) (the Act). The Plan forms
part of a suite of plans within the Local Disaster Management Plan. It is supported by Sub-plans
and SOPs that outline the procedures to be followed when the CBD Emergency Plan is activated.
These Sub-plans and SOPs are available from relevant stakeholder agencies.
The relationship between these plans is demonstrated in Diagram 2.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
Diagram 2 Disaster Management suite of plans
1.6
Approval
This plan is approved by the Brisbane LDMG under the terms and provisions of the Act in
consultation with other agencies.
1.7
Custodian
The MDMO, on behalf of Council, is the custodian of this plan. The custodian has the responsibility
for implementing, evaluating, testing, reviewing and updating this plan. The custodian is also to
ensure proper quality, security, integrity, consistency, privacy, confidentiality and accessibility of
the plan.
The Custodian’s contact details are:
Title: Manager, Disaster Management Office
Contact: (07) 3403 8888
GPO Box 1434 Brisbane Qld, 4001
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
2.0
ROLES AND RESPONSIBILITIES
2.1
Lead Agency
Queensland Police Service (QPS)
In most cases of an emergency incident with limited warning, the QPS will be an early public and
agency contact point and the first responder to an incident scene.
QPS will assess if a declaration is required under the legislation to enable the legislative powers to
be used for the disaster response.
QPS will establish lines of communication with stakeholder agencies and liaison officers and will be
responsible for communicating public safety, security warnings and advice.
Should an evacuation be required, QPS will be responsible for:



Managing the evacuation process from the CBD area to the Emergency Support Site/s
The registration of people at Reception Centres and Evacuation Centres. However, this
authority may be delegated to Red Cross
Maintaining public safety at the assembly/reception/evacuation centres.
QPS will be the lead agency in the event of an emergency situation. Should the incident involve the
implementation of the State Chemical/Hazardous Material (HAZMAT) Plan by Queensland Fire
and Emergency Services (QFES), QFES will be responsible for the safety of the site.
2.2
Support Agencies
2.2.1 Brisbane City Council (Council)
The implementation of the Plan sits with the LDC and/or the Chair of the Brisbane LDMG.
Council will:






Mitigate the effects of disasters on the community wherever possible or practical
Provide support to the lead agency
Repair and restore Council owned assets for the community and strategic operation of
Council
Arrange provision of emergency utilities to Council’s own critical infrastructure during an
emergency where considered necessary until permanent services are restored
Provide bus services from the transport nodes to the drop off suburban locations if
considered safe
Establish Reception Centres and Evacuation Centres.
2.2.2 Queensland Fire and Emergency Services (QFES)
QFES will:



Be the lead agency for the implementation of the State Chemical/Hazardous Material
(HAZMAT) Plan. In a HAZMAT incident the QFES is responsible for the establishment of
safe operating zones and the safety of personnel including those of other agencies.
In the case of an emergency, move quickly to assess damage to areas and identify
structures that provide a serious risk of collapse or threat to life.
Be responsible for the protection of persons, property and the environment from fire and
hazardous materials emergencies under the Fire and Rescue Service Act 1990 (Qld).
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CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
2.2.3 Department of Communities, Child Safety and Disability Services
The Department of Communities, Child Safety and Disability Services will:




Assist Council with providing support personnel at the Reception Centres and Evacuation
Centres
Coordinate human and social recovery services
Assist with the identification of vulnerable and high risk groups in the Brisbane CBD and
coordinate information and support to these groups
Maintain liaison and timely communication with partner agencies of the Brisbane District
Human Social Recovery Committee.
2.2.4 Brisbane Metropolitan Transport Management Centre (BMTMC)
BMTMC provides a multi-agency resource for traffic management. They will provide real time traffic
management responses in an emergency. The BMTMC support includes:



Establishing a stakeholder operational response group at the Centre that links with the QPS
Police Operations Centre through QPS representation at the Centre
Developing real time traffic management plan response options
Managing secondary incidents to minimise their impact on the Traffic Sub-plan
implementation.
2.2.5 Department of Transport and Main Roads (TMR)
TMR is responsible for planning, managing and delivering Queensland’s integrated transport
environment to achieve sustainable transport solutions for road, rail, air and sea2.
During a disruptive event TMR will:




Provide information and advice on the impact of disruptive events on road, rail, aviation and
maritime infrastructure as it affects the transport system
Enable an accessible transport system through reinstating road, rail and maritime
infrastructure
Assist with the safe movement of people as a result of mass evacuation of a disasteraffected community
Ensure the capability of logistics related industries are appropriately applied to disaster
response and recovery activities3.
2.2.5.1 Metro Road Operations
Busway management will:


Manage, monitor and maintain the busway network and other significant public transport
infrastructure on a 24/7 basis.
Undertake road responses and patrols on a 24/7 basis by Busway Safety Officers
Busway Operations Centre will:
2
Source: http://www.tmr.qld.gov.au/About-us.aspx date retrieved: 4 December 2012
3
Source:
http://www.disaster.qld.gov.au/Disaster%20Resources/Documents/State%20Disaster%20Management%20Plan%20June%202011.pdf,
retrieved: 4 December 2012.
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CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1

Maintain communication with all vehicles on the bus way network with all activity by the
vehicles and the public monitored via its extensive CCTV network and other Intelligent
Transport Systems.
2.2.5.2 TransLink
TransLink will:

Deliver an integrated public transport system for Queensland together with state and local
governments, industry and community groups. (TransLink's business partners include
Brisbane Transport, Queensland Rail, Council (ferries) and a number of private bus
operators.)
2.2.6 Queensland Rail
Queensland Rail will be responsible for:



The conduct of occupancy searches of affected infrastructure involved in the evacuation of
personnel (e.g. stations and rolling stock)
Providing enhanced security (under the guidance of QPS) for affected rail-related Critical
Infrastructure
Providing a Queensland Rail Liaison Officer.
2.2.7 Australian Red Cross
Australian Red Cross will:





2.3
Manage the Reception Centre or Evacuation Centre upon direction from and on behalf of
Council
Register evacuees at agreed sites on behalf of QPS
Manage the welfare of evacuees at agreed sites on behalf of Council
Provide Red Cross personnel to evacuation sites
Identify any additional needs of people during the registration process and refer them to the
respective agency or person on site.
Community
2.3.1 Residents
Residents can be prepared for a CBD emergency in the following ways:






Have a personal emergency plan
Prepare an emergency kit. This is a carry bag stored in an easily accessible place that
provides for a household’s essential needs in the event of emergencies like storms, floods
and cyclones
Prepare an evacuation kit. This is a carry bag stored in an easily accessible place that
provides for a household’s essential needs should residents need to evacuate their home
and be unable to return for a period of time
Be familiar with evacuation plans and how they may be asked to respond
Limit use of mobile phones (as systems may be overloaded and not working)
Make provisions for pets.
2.3.2 Workers
Workers can be prepared for a CBD emergency in the following ways:

Be familiar with building evacuation plans and assembly areas
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CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1



Be familiar with the concepts of the Plan and how they may be asked to respond
Share official advice with others
Limit use of mobile phones.
2.3.3 Visitors
Visitors can be prepared for a CBD emergency in the following way:





Review emergency and safety information from accommodation provider
Seek advice from emergency organisations
Listen to media coverage
Share official advice with others
Limit use of mobile phones.
2.3.4 Students
Students can be prepared for a CBD emergency in the following way:




Be familiar with education facilities emergency plans
Listen to media coverage
Share official advice with others
Limit use of mobile phones.
2.3.5 Building managers
Owners and/or managers of CBD buildings have the following responsibilities:



Comply with standards for emergency management
Ensure fire and emergency plans include how the information regarding an evacuation plan
will be disseminated to occupants of the building
Ensure fire and emergency plans show Emergency Support Sites with consideration given
to multiple buildings not having the same assembly point.
2.3.6 Fire wardens
Fire wardens within CBD buildings have the following responsibilities:



Carry out response as per emergency response plan
Monitor public information sources such as radio, public address systems and sirens
Upon evacuation, marshal people to building assembly areas.
2.3.7 Child care centres
Owners, licensees and directors of CBD childcare centres have the following responsibilities:





Ensure an emergency plan exists for the safe evacuation of the centre
Have a plan for ‘lock down’ of the centre
Have a plan for the care of children for an extended period if required to ‘shelter in place’
Prepare an evacuation kit
Have a communications strategy for providing advice to parents should the circumstances
allow.
2.3.8 Education facilities
Educational facilities have the following responsibilities:
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CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1


Have an emergency plan for the evacuation of the facility
Be familiar with the emergency plan.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
3.0
ACTIVATION
Prior to activation of the CBD Emergency Plan (the Plan), consultation will be undertaken with all
relevant agencies. The decision to activate the Plan can be made by any one of the following
people:




District Disaster Coordinator (DDC) - QPS Assistant Commissioner Brisbane Region
Chair, Local Disaster Management Group (LDMG) - Lord Mayor BCC
Local Disaster Coordinator (LDC) - BCC CEO
QPS District Officer for North Brisbane District.
Some considerations that should be made prior to this decision include:




Current situation
Public safety or public order
Prevention or minimisation of property loss or damage
Prevention or minimisation of damage to the environment.
The activation of the Plan will automatically activate all the CBD Emergency Sub-plans. Depending
on the impact of the incident, it may not be necessary to implement all sub-plans.
3.1
Disaster Management Levels of Activation
State disaster management levels of activation have been adopted and these are detailed below.
Alert

A heightened level of vigilance due to the possibility of an event. No action is required
however the situation should be monitored by someone capable of assessing the potential
threat.
Lean Forward

An operational state prior to ‘stand up’ characterised by a heightened level of situational
awareness of a disaster event and a state of operational readiness. Disaster coordination
centres are on standby.
Stand Up

Resources are mobilised, personnel are activated and operational activities commenced.
Disaster coordination centres are activated.
Stand Down

Transition from responding to an event back to normal core business and/or recovery
operations. The threat is no longer present.
Typically, major incidents move through these activation levels, however, depending on the event,
the response may jump levels and go straight to Stand Up.
3.2
Activation Process
This section provides further information on the various steps involved in the activation process.
The process is also demonstrated in Diagram 3 – CBD Emergency Plan Activation Flowchart.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
3.2.1 Advice of Incident
Immediate notification about the emergency may be received or made known in a number of ways.
These may include:




Witness to the event
Advised by other members of the community
Advised by emergency services personnel
Via building emergency systems
3.2.2 QPS Command Provides Advice
The QPS Command will provide advice to relevant QPS senior staff on the emergency event. Such
advice will help to form the decision on whether to activate the CBD Emergency Plan.
3.2.3 Advise CBD Emergency Plan Stakeholders
The QPS will liaise with the CBD Emergency Plan stakeholders and provide advice that an incident
has occurred and any known relevant information deemed necessary regarding the event. This
advice may include any known actions that are to be taken by stakeholders.
3.2.4 Decision to activate plan
A decision to activate the plan will be made in accordance with Section 3 of this plan. Should a
decision be made that the plan is not to be activated, then the CBD Emergency Plan stakeholders
are to be advised to continue with ‘Business as Usual’.
3.2.5 Activate CBD Emergency Plan and Sub-plans
Upon a decision to activate the CBD Emergency Plan, all sub-plans will automatically be activated.
All relevant strategies and actions detailed in the plans will be implemented.
3.2.6 Advise Community & Stakeholders
The provision of clear and consistent advice is essential. General advice and specific instructions
will be broadcast to stakeholders via official social media channels and mainstream media
including emergency 612 ABC radio broadcasts.
The Public Information Sub-plan provides further information on dissemination of information to the
community.
3.2.7 Risk assessment
QPS and relevant key agencies will conduct risk assessments after the initial incident and then on
a continual basis to monitor the situation and determine when it is safe for the community to return
to the CBD area.
The community and stakeholders will be updated as required by the relevant agency through the
existing methods described in the Public Information Sub Plan.
3.2.8 Stand Down
Should a determination be made that the risk and threat no longer exists, the stakeholder who
activated the Plan in accordance with Section 3 of this plan will make a decision to deactivate the
plans and stand down accordingly.
The activation of the Plan is demonstrated in Diagram 3 below.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
INCIDENT OCCURS
QPS Command
provides advice
YES
Activate CBD
Emergency Plan
and Sub-Plans
Advise
Community &
Stakeholders
Continue Risk
Assessment
Update
Community &
Stakeholders (if
required)
YES
Advise CBD
Emergency Plan
Stakeholders
Advise CBD
Emergency Plan
Stakeholders
Is threat still
present?
NO
NO
Activate Plan?
‘Stand Down’
NO
‘Business as usual’
Deactivate Plans
Advise Community &
Stakeholders
Advise CBD
Emergency Plan
Stakeholders
Diagram 3 – CBD Emergency Plan Activation Flowchart
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
4.0
SUB-PLANS
4.1
Plan Structure
The CBD Emergency Plan is supported by 7 sub-plans as shown in diagram 4 below.
Diagram 4 CBD Emergency Plan Structure
This section provides an overview of what is contained in each of the Sub-plans.
4.1.1 Traffic Sub-plan
The Traffic sub-plan identifies the arrangements for a traffic response to an emergency situation
affecting the Brisbane CBD. It supports actions that arise from the CBD Emergency Plan including
full or partial evacuation of the city.
4.1.2 Public Transport Sub-plan
The Public Transport sub-plan identifies the arrangements for the public transport response to an
emergency situation affecting the Brisbane CBD. It supports actions that arise from the CBD
Emergency Plan including full or partial evacuation of the city.
4.1.3 Public Information Sub-plan
The Public Information sub-plan defines roles and responsibilities in relation to the coordinated
release of Public Information to ensure efficient, clear and concise messages are distributed to the
public.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
4.1.4 Human Services Sub-plan
The Human Services sub-plan details the actions to be taken by the Emergency Human Services
Operational Team upon activation of the CBD Emergency Plan. The plan describes the roles and
responsibilities of key external agencies in the provision of human services and assistance to
people affected by an evacuation of the city.
4.1.5 Infrastructure and Utilities Sub-plan
The Infrastructure and Utilities sub-plan defines how, during an emergency event, critical
infrastructure is identified and key agencies communicate and work together effectively to repair
and maintain assets.
4.1.6 Safety and Security Sub-plan
The Safety and Security sub-plan details the safety and security measures to be taken upon
activation of the CBD Emergency Plan. The plan establishes the framework for a multi-agency
response to a significant emergency incident impacting the Brisbane CBD.
4.1.7 Intelligence and Rapid Damage Assessment (RDA) Sub-plan
The Intelligence and RDA sub-plan details how intelligence and RDA will be coordinated and
disseminated in the case of an emergency in the CBD.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
5.0
INCIDENT STAGES
The response to an emergency situation or incident that impacts on the CBD may be the result of:



Acts against the State
Non natural disaster
Natural disaster
The initial response to an incident will usually involve key agencies such as police, fire and rescue
and ambulance. This response will focus on:





Prevention of loss of life and serious injury
Gathering of information so as to deliver an appropriate response
Evacuation of people who are at immediate risk
Activation of resources and deployment to the incident site
Establishing command and control of the incident site.
QPS supported by the powers enacted by a declaration made under legislation, including the
Public Safety Preservation Act 1986 (Qld) and Disaster Management Act 2003 (Qld), enables the
response to emergency and disaster situations.
As the type and scale of an emergency incident will probably be different for each event, the
response will also be different. A range of options will assist in providing flexibility and agility.
Options that may be considered are detailed below.
5.1
Business as Usual
People within the CBD who are not affected by the incident may be advised to continue with their
normal day-to-day activities. However, they may not be able to access other parts of the CBD.
They should also be aware that public transport may not be operating as normal and vehicle
access/egress may be affected.
5.2
Shelter in Place
Evacuation can have significant impact on the individual, the business and the wider community. In
a high density area such as the CBD, buildings offer a level of security and protection. There may
be occasions when it is 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, television and/or the internet to receive information
may assist to reduce vulnerability.
5.3
Immediate Evacuation
An immediate evacuation is often self-initiated in response to immediate danger. It is expected that
some self-evacuation and immediate evacuation will occur.
This type of evacuation will allow little or no time for warnings and limited preparation time.
Some examples of events that may require immediate action are hazardous materials
accidents/incidents, air crash, fire and earthquake.
Once the parameters of the incident are better understood, the incident is isolated and contained
and a command and control structure is in place, additional responses such as the following may
be considered:

Partial Evacuation: An emergency in the CBD may affect only a particular sector of the
city. Should this be the case, and should it be considered a safer option for people to
remain where they are, a partial evacuation of the city may be an option.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1

Mass Evacuation: A mass evacuation involves more planning than an immediate
evacuation and will involve the activation of supporting roles and structures.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
6.0
EVACUATION STAGES
The identification of sectors within the CBD boundary allows for the Plan to be scalable and flexible
in an emergency event.
Diagram 5 CBD Emergency Plan Sector Map
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
There are five distinct evacuation stages for a planned mass evacuation:
1. Decision to evacuate
2. Warning to affected people of the impending evacuation
3. Withdrawal/evacuation of affected people
4. Sheltering of people evacuated
5. Return of affected people
6.1
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:



People would be significantly safer at another location
The risks are less than the risks of remaining at the present location
Evacuation is necessary to allow effective management of the response to the incident.
The decision to authorise an evacuation may occur under the following conditions/authorities:




6.2
Queensland Police Service (QPS) may order an evacuation under the Public Safety
Preservation Act 1986 (Qld) (PSPA) or Disaster Management Act 2003 (Qld) if the relevant
declaration has been made.
Queensland Fire and Emergency Services (QFES) may order an evacuation under the
Fire and Rescue Service Act 1990 (Qld) and PSPA.
Brisbane LDMG may recommend a 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.
Warning
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.
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. The QPS will use established methods of disseminating public
information through mainstream and social media channels including emergency 612 ABC radio
broadcasts.
6.3
Withdrawal
The withdrawal phase involves the movement of people from the CBD to a place of safety while
the status of the transport system is assessed and arrangements are made to move people out of
the CBD.
Generally, the QPS will authorise the evacuation of people from the CBD; however the movement
of evacuees to a safe location will be a coordinated approach led by QPS and supported by
Council.
Evacuees may be requested to do all or any of the following depending on the circumstances:
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1






Move to another part of the City and delay journeys home
Move to specific locations for transport out of the City
Identify themselves if they have specific needs
Move to an Emergency Support Site
Evacuate under their own means if the situation permits
Walk home.
Part or all of the CBD may be inaccessible to incoming vehicles with the exception of emergency
and essential services and available public transport. If evacuees make arrangements to be
collected by car, collection should be made from outside of the CBD perimeter.
6.4
Shelter
Initially evacuees who do not evacuate under their own means or require assistance will be
directed to an Emergency Support Site. Evacuated people who are residents of the CBD or are in
temporary accommodation will be requested to make alternate arrangements with friends or family
where possible. If this is not possible, these persons will be directed to temporary accommodation
arranged under the existing disaster management arrangements.
Evacuees who are working or visiting within the CBD and require transport out of the City will be
transported from an operating transport node as identified in the Public Transport Sub-plan to a
preferred outlying suburban location.
6.5
Return
The return of people after an evacuation of the CBD will depend on the nature and scope of the
incident.
Long term recovery of the affected area is outside the scope of this plan and is managed by
existing recovery arrangements.
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
7.0
EMERGENCY SUPPORT SITES
Emergency Support Sites are locations adjacent to the CBD that have been identified as suitable
for the temporary management of large numbers of persons who have been evacuated from within
the CBD.
The following areas have been identified as potential sites. These venues have been chosen
because they:




Are within reasonable walking distance of the CBD area
Have sufficient facilities to provide for the short term needs of a large number of people;
Are suitable for the temporary management of people with special needs; and
Are adjacent to Transport Nodes which may be activated to transport people away from the
Emergency Support Sites.
Site
South Bank
Parklands
Brisbane Convention &
Exhibition Centre
Suncorp Stadium
RNA
Showgrounds
Address
South Bank, South
Brisbane
(between Little
Stanley St &
Brisbane River)
Cnr Merivale and Glenelg
Streets
South Bank, South
Brisbane
40 Castlemaine
Street, Milton
600 Gregory
Terrace Bowen
Hills
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BRISBANE CITY COUNCIL LOCAL DISASTER MANAGEMENT PLAN
CHAPTER 2 – BRISBANE CBD EMERGENCY PLAN V1.1
8.0
ACRONYMS, ABBREVIATIONS AND DEFINITIONS
BCC
Brisbane City Council
BMTMC
Brisbane Metropolitan Transport Management Centre
Business as Usual
Continue with normal day to day activities
CBD
Central Business District
DDC
District Disaster Coordinator
TMR
Department of Transport and Main Roads
HAZMAT
Hazardous Material
LDC
Local Disaster Coordinator
LDMG
Local Disaster Management Group
MDMO
Manager, Disaster Management Office
QFES
Queensland Fire and Emergency Services
QPS
Queensland Police Service
RDA
Rapid Damage Assessment
Shelter in Place
People not at immediate risk but affected by or in the proximity of
an incident will generally shelter in place in the first instance and
await advice from emergency services.
SOP
Standard Operating Procedure
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