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2015-06-23 I&S Agenda - Item 5 - Local Disaster Recovery Plan - Attachment 2
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Item 5 - ATTACHMENT 2
| I&S Agenda, 23 Jun
Noosa Local Disaster Recovery Plan 2015/16
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NOOSA COUNCIL PO Box 141 Tewantin QLD 4565 P. (07) 5329 6500 [email protected]
ABN: 97 969 214 121 9 Pelican Street Tewantin F. (07) 5329 6501 www.noosa.qid.gov.auSee the original
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Full text of sections 2 to 89 (of 151)
Section 2
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Section 3
Noosa Local Disaster Recovery Plan 2015/2016 Acknowledgements Portions of this document, particularly Part C of this plan, are wholly or partially derived from the Australian Government, Australian Emergency Management Institute–Community Recovery, Handbook 2, 2011 and the South Burnett Disaster Recovery Plan. Tables and Figures used or derived from these publications are acknowledged throughout this plan. Support and information provided by Queensland Fire and Emergency Services and Volunteering Queensland are also acknowledged. Noosa Council would like to acknowledge and thank Rai Whitten for his significant contribution to the development of this plan. Copyright Permission to use the document and related graphics is granted provided that (1) the below copyright notice appears in all copies and that both the copyright notice and this permission notice appear, and (2) use of document and related graphics is for educational, informational and non-commercial or personal use only. Disclaimer The Noosa Council, in consultation with emergency management professionals and subject matter specialists, exercised care in the compilation and drafting of this publication, however, the document and related graphics could include technical inaccuracies or typographical errors and the information may not be appropriate to all situations. Distribution and amendment This is a public document and is version controlled. The document controller is the: Local Recovery Coordinator Noosa Council This plan is designed for electronic distribution. The latest version is available on the Noosa Council’s website. Hard copies are available for viewing at public libraries and council offices. Council will provide a copy to any member of the public on request. Noosa Council maintains a distribution register of organisations and agencies that require advice of any amendment to the Plan. Noosa Council will distribute newer versions of the plan to those on the distribution register. Amendment register Version Number Date Detail of Amendment 1.0 24 April 2015 Initial Issue of Plan
Section 4
Noosa Local Disaster Recovery Plan 2015/2016 Foreword Effective recovery after a disaster is vital to ensure the wellbeing of individuals and our community. It is more than simply the replacement of what has been destroyed and the rehabilitation of those affected. It is a social and developmental process that involves all sections of the community working together to return to normality and wherever possible to enhance social networks, improve the natural and built environments, and kick start the economy. The complexity and timeframes of recovery demand sound planning, effective coordination and above all, community involvement. This plan addresses these aspects and articulates how the Noosa will undertake recovery operations during and following a disaster. In doing so this plan provides a framework for the management and coordination of recovery in four key areas:- social, infrastructure, economic and environmental recovery. The recovery process starts with damage assessments and needs analysis immediately after an event and then moves to solving complex, inter-related issues in innovative ways. This plan complements the Noosa Local Disaster Management Plan. This plan provides a framework for the effective recovery of the Noosa Shire Council area following a disaster in accordance with the Disaster Management Act, 2003 and relevant guidelines. It is endorsed by the Local Disaster Management Group. This plan was approved for distribution at the Noosa Local Disaster Management Group meeting on 18 March 18 2015 and by Noosa Council at its Ordinary Meeting on 2 July 2015.
Section 5
Noosa Local Disaster Recovery Plan 2015/2016
Table of Contents
PART A – PHILOSOPHY OF RECOVERY ........................................................................................... 1
1. Introduction ................................................................................................................ 1
2. Four functions/pillars of recovery................................................................................ 2
3. Recovery principles .................................................................................................... 2
3.1 Understanding the context.................................................................................................. 3
3.2 Recognising complexity ...................................................................................................... 3
3.3 Using community-led approaches ...................................................................................... 3
3.4 Ensuring coordination of all activities ................................................................................. 4
3.5 Employing effective communication ................................................................................... 4
3.6 Acknowledging and building capacity ................................................................................. 4
4. Re-establishing resilience as soon as possible after an event .................................... 4
5. Post disaster psychology ........................................................................................... 4
6. Levels of recovery ...................................................................................................... 5
6.1 Immediate/short term relief ................................................................................................. 5
6.2 Medium term recovery ........................................................................................................ 6
6.3 Long term recovery ............................................................................................................. 7
7. Summary ................................................................................................................... 7
PART B – RECOVERY ARRANGEMENTS .......................................................................................... 8
8. Recovery in the Noosa context .................................................................................. 8
8.1 Community profiles ............................................................................................................. 8
9. Queensland’s recovery framework ............................................................................. 8
9.1 Authority for recovery ......................................................................................................... 8
10. Noosa recovery framework ..................................................................................... 9
10.1 Recovery concept of operations ......................................................................................... 9
10.2 Core Noosa Local Disaster Recovery Committee membership ......................................... 9
10.3 Local Recovery Coordinator ............................................................................................. 11
10.4 Noosa Local Disaster Recovery Committee..................................................................... 11
10.5 Sub-groups ....................................................................................................................... 12
10.6 Local advisory groups ....................................................................................................... 12
10.7 Supporting agencies ......................................................................................................... 12
11. Governance arrangements ................................................................................... 12
11.1 Appointments .................................................................................................................... 12
11.2 Meetings of the Local Disaster Recovery Committee and sub-groups ............................ 13
11.3 Records of meetings ......................................................................................................... 13
11.4 Reporting .......................................................................................................................... 13
11.5 Disaster District role ......................................................................................................... 13
11.6 Functional lead agencies (state level) .............................................................................. 14
11.7 Establishment of a statutory authority by the State .......................................................... 14
11.8 Establishment of State Recovery Coordinators................................................................ 15
11.9 State Recovery Group ...................................................................................................... 15
12. Recovery preparedness........................................................................................ 15
12.1 Pre-engagement with the community ............................................................................... 16
12.2 Pre-engagement with potential advisory groups .............................................................. 16
12.3 Training in recovery processes ........................................................................................ 16
13. Recovery concepts of operation ........................................................................... 16
13.1 Recovery process ............................................................................................................. 16
13.2 Activation .......................................................................................................................... 17
13.3 Activation process and transition between levels ............................................................. 18
13.4 Transitioning from immediate/short term relief to medium level recovery ........................ 20
13.5 Transitioning to long term recovery .................................................................................. 20
13.6 Community needs analysis............................................................................................... 20
Section 6
Noosa Local Disaster Recovery Plan 2015/2016
13.6.1 Format / process for community needs analysis ..................................................................... 22
13.6.2 Undertaking needs analysis by sector .................................................................................... 22
13.7 Establish recovery framework .......................................................................................... 22
13.8 The Recovery Operational Plan ....................................................................................... 22
13.9 Action plans ...................................................................................................................... 23
14. Community engagement strategies ...................................................................... 24
14.1 Local advisory groups ....................................................................................................... 24
14.2 Public forums and community meetings ........................................................................... 24
15. Training and exercising ........................................................................................ 24
15.1 Training ............................................................................................................................. 24
15.2 Exercising ......................................................................................................................... 25
16. Financing Recovery .............................................................................................. 25
16.1 Natural Disaster Relief and Recovery Arrangements (NDRRA) ...................................... 25
16.2 Category A and B arrangements ...................................................................................... 26
16.3 Category C arrangements ................................................................................................ 26
16.3.1 Community recovery fund ....................................................................................................... 26
16.3.2 Recovery grants for small businesses .................................................................................... 27
16.3.3 Recovery grants for primary producers .................................................................................. 27
16.4 Category D arrangements ................................................................................................ 27
16.5 How to apply for Category C or D funding ........................................................................ 27
16.6 Other funding options for recovery ................................................................................... 28
17. Other payments to disaster affected individuals .................................................... 28
17.1 Australian Government disaster recovery payment ......................................................... 28
17.2 Disaster Income Recovery Subsidy Payment (DIRS) ...................................................... 29
18. Coordination of donations and offers of assistance............................................... 29
19. Recovery centres and outreach services .............................................................. 30
20. Debrief, review and evaluation.............................................................................. 30
20.1 Periodic debriefs ............................................................................................................... 30
20.2 Final debrief ...................................................................................................................... 30
20.3 Debrief framework ............................................................................................................ 31
20.4 Debrief reports .................................................................................................................. 31
PART C – RECOVERY ACTIVITIES ................................................................................................... 32
21. Introduction........................................................................................................... 32
22. Recovery project cycle ......................................................................................... 32
23. Human/social recovery ......................................................................................... 32
23.1 Principles of effective social recovery .............................................................................. 33
23.2 Categories of human/social recovery ............................................................................... 33
23.3 Safety and security ........................................................................................................... 34
23.4 Shelter .............................................................................................................................. 34
23.5 Emergency and short term accommodation ..................................................................... 34
23.6 Interim/medium term accommodation .............................................................................. 34
23.7 Other considerations for recovery accommodation .......................................................... 35
23.8 Health ............................................................................................................................... 35
23.9 Psychosocial support ........................................................................................................ 36
23.10 Psychological first aid ................................................................................................... 37
23.11 Personal support services ............................................................................................ 38
23.12 Practical assistance as a component of personal support services ............................. 38
23.13 Designing individual and household psychosocial support programs .......................... 38
23.14 Community development activities and programs ....................................................... 39
23.15 Managing volunteers and donated goods .................................................................... 39
23.16 Groups with special needs ........................................................................................... 39
23.17 Children and young people........................................................................................... 40
23.18 Culturally and linguistically diverse communities ......................................................... 40
23.19 Aged ............................................................................................................................. 41
23.20 Support for the bereaved .............................................................................................. 41
23.21 People temporally separated from, or have lost, their companion animals ................. 41
23.22 Cultural and spiritual factors ......................................................................................... 42
23.23 Community Development Officers ................................................................................ 42
Section 7
Noosa Local Disaster Recovery Plan 2015/2016
24. Infrastructure Recovery ........................................................................................ 43
24.1 Introduction ....................................................................................................................... 43
24.2 Categories of infrastructure recovery ............................................................................... 43
24.3 Essential services ............................................................................................................. 43
24.3.1 Communications systems ....................................................................................................... 43
24.3.2 Energy supplies ...................................................................................................................... 44
24.3.3 Water supply, treatment and sewage ..................................................................................... 44
24.3.4 Food production, food merchandise and distribution .............................................................. 44
24.3.5 Health infrastructure ............................................................................................................... 44
24.3.6 Sanitation (liquid and solid waste disposal) ............................................................................ 45
24.3.7 Security................................................................................................................................... 45
24.3.8 Transport Networks ................................................................................................................ 45
24.4 Rural infrastructure ........................................................................................................... 45
24.5 Residential infrastructure .................................................................................................. 46
24.6 Commercial and industrial infrastructure .......................................................................... 46
24.7 Public buildings and asset infrastructure .......................................................................... 46
24.8 Infrastructure recovery planning ....................................................................................... 47
24.9 Key steps in infrastructure recovery ................................................................................. 47
24.10 Infrastructure needs assessment ................................................................................. 47
24.11 Reconstruction .............................................................................................................. 48
24.12 Planning for reconstruction ........................................................................................... 48
24.13 Approvals and planning ................................................................................................ 49
24.14 Implementing reconstruction ........................................................................................ 49
24.15 Other considerations .................................................................................................... 50
24.15.1 Make safe ............................................................................................................................... 50
24.15.2 Clean up ................................................................................................................................. 50
25. Economic Recovery.............................................................................................. 51
25.1 Introduction ....................................................................................................................... 51
25.2 Categories of economic impacts after disaster ................................................................ 51
25.3 Economic impact assessment and needs analysis .......................................................... 52
25.4 Measuring economic impact ............................................................................................. 52
25.5 Economic impact versus financial impact ......................................................................... 52
25.6 Tangible versus Intangible Impacts .................................................................................. 52
25.7 Direct and indirect impacts on sectors ............................................................................. 53
25.8 Guidelines for economic recovery .................................................................................... 54
25.9 Economic recovery - management strategies .................................................................. 54
25.10 Economic recovery - service delivery strategies .......................................................... 55
25.11 Economic recovery - enabling initiatives ...................................................................... 55
25.12 Financial services ......................................................................................................... 56
25.13 Financial assistance—public appeal funds .................................................................. 56
25.14 Financial assistance—insurance .................................................................................. 57
25.15 Insurance Council of Australia ...................................................................................... 57
25.16 Australian Taxation Office ............................................................................................ 57
25.17 Public-private partnerships ........................................................................................... 57
25.18 Steps to Economic Recovery ....................................................................................... 58
25.19 Checklist ....................................................................................................................... 60
26. Environment Recovery ......................................................................................... 60
26.1 Introduction ....................................................................................................................... 60
26.2 Components of environment recovery ............................................................................. 61
26.3 Environment impact assessment and needs analysis ..................................................... 62
26.4 Interaction with the other pillars of recovery ..................................................................... 63
26.5 Principles of ecologically sustainable development (in recovery) .................................... 64
26.6 Using an environmental risk management approach ....................................................... 64
26.7 Establish the context for recovery of the environment ..................................................... 65
26.8 Identify environmental risks .............................................................................................. 66
26.9 Analyse environmental risks ............................................................................................. 66
26.10 Evaluate environmental risks........................................................................................ 66
26.11 Treat environmental risks ............................................................................................. 66
26.12 Monitor and review ....................................................................................................... 66
26.13 Communicate and consult ............................................................................................ 67
27 Appendices........................................................................................................... 71
27.1 Phases individuals and communities might experience post-disaster ............................. 71
27.2 Noosa human/social profile .............................................................................................. 72
Section 8
Noosa Local Disaster Recovery Plan 2015/2016
27.3 Noosa Economic Profile ................................................................................................... 75
27.4 Noosa infrastructure profile .............................................................................................. 77
27.4.1 Community facilities ................................................................................................................ 77
27.4.2 Emergency services ............................................................................................................... 79
27.4.3 Transport ................................................................................................................................ 82
27.4.4 Electrical and water services .................................................................................................. 84
27.5 Noosa environmental profile ............................................................................................. 89
27.6 Terms of reference - Local Disaster Recovery Committee .............................................. 89
27.6.1 Role ........................................................................................................................................ 89
27.6.2 Responsibilities....................................................................................................................... 89
27.6.3 Reporting ................................................................................................................................ 90
27.6.4 Sub-groups ............................................................................................................................. 90
27.6.5 Core members ........................................................................................................................ 90
27.7 Generic terms of reference for each sub-group ............................................................... 92
27.7.1 Economic Recovery Sub-group .............................................................................................. 92
27.7.2 Human / Social Recovery Sub-group ..................................................................................... 93
27.7.3 Infrastructure Recovery Sub-group ......................................................................................... 95
27.7.4 Environment Recovery Sub-group.......................................................................................... 96
27.8 Possible Local Advisory Groups ....................................................................................... 97
27.8.1 Economic Local Advisory Group ............................................................................................. 97
27.8.2 Infrastructure Local Advisory Group ....................................................................................... 97
27.8.3 Human / Social Local Advisory Group .................................................................................... 98
27.8.4 Environment Local Advisory Group ........................................................................................ 98
27.8.5 Community Local Advisory Groups ........................................................................................ 98
27.9 Agencies with recovery functions ..................................................................................... 98
27.10 Example format of a Recovery Operational Plan ....................................................... 106
27.11 Example format for an action plan .............................................................................. 109
27.12 Checklist—human/social recovery ............................................................................. 110
27.13 The stages and key process elements of infrastructure recovery .............................. 112
27.14 Checklist for infrastructure recovery ........................................................................... 116
27.15 Checklist economic recovery ...................................................................................... 118
27.16 Environment risk management approach ................................................................... 120
27.17 Checklist environmental recovery .............................................................................. 121
27.18 Guide to managing volunteers ................................................................................... 122
27.18.1 Introduction ........................................................................................................................... 122
27.18.2 Noosa volunteer philosophy ................................................................................................. 122
27.18.3 Setting objectives for volunteer effort ................................................................................... 123
27.18.4 Coordinating volunteer effort ................................................................................................ 123
27.18.5 Working with volunteer organisations ................................................................................... 124
27.18.6 Volunteer insurance and workplace health and safety ......................................................... 124
27.18.7 Recognising and supporting volunteers ................................................................................ 125
27.18.8 Maintaining documentation and record-keeping ................................................................... 125
27.18.9 Public information ................................................................................................................. 125
Attachment 1 to terms of reference – Volunteer Coordinator............................................................. 126
Attachment 2 to insurance – organisations involving volunteers ....................................................... 127
28 Checklists ........................................................................................................... 129
28.1 Pre-event recovery planning........................................................................................... 129
28.2 Undertake community recovery management/coordination ........................................... 130
28.3 Recovery management and operational considerations ................................................ 133
28.4 Outreach ......................................................................................................................... 135
28.5 Evacuation/emergency relief centre ............................................................................... 136
28.6 Recovery centre ............................................................................................................. 138
28.7 Managing people ............................................................................................................ 140
28.8 Community recovery evaluation ..................................................................................... 142
Section 9
Noosa Local Disaster Recovery Plan 2015/2016
Authority
This plan is prepared under the authority of the Queensland Disaster Management Act 2003
as an operational plan within the suite of disaster management documents which comprise
the Noosa Shire Council’s Local Disaster Management Plan.
Purpose
The purpose of this plan is to provide guidance and direction on the preparation for and
conduct of disaster recovery operations in the Noosa Shire.
Objectives
The objectives of this plan are to:
outline the Noosa recovery framework and management processes
ensure a community participation and a community-led recovery process
provide guidance on appropriate recovery measures and activities
How to use this plan
This plan is provided in three parts:
Part A – Philosophy of recovery which describes the principles and nature of
recovery to provide a foundation for the remainder of the plan.
Part B – Recovery arrangements which provides detail on the frameworks and
management of the recovery effort, and
Part C – Recovery activities which provides guidance on how to conduct recovery
across the four pillars of recovery along with the activities that may be undertaken for
recovery following a disaster event.
Maintenance of this plan
This Plan is maintained by the Local Recovery Coordinator. It is to be reviewed annually or
after activation of recovery processes following an event to ensure it remains current and
relevant. Any proposed changes to this plan should be provided to the Local Recovery
Coordinator, Noosa Shire Council for approval by the Noosa Local Disaster Management
Group.
Section 10
PART A – Philosophy of Recovery
1. Introduction
The need for recovery may arise from a range of events, including natural and technological
disasters, major incidents, and major health emergencies, including pandemic and animal
and plant diseases. Recovery begins shortly after the response phase has begun and
damage has been identified. There will normally be an overlap of the response and
recovery phases; during this period the Local Recovery Coordinator (LRC) will work closely
with the Local Disaster Coordinator (LDC) to assess the level of impact of any particular
event upon the community.
Where the impact on the Noosa Community (in whole or part) is deemed to be significant the
LDC, in consultation with the LRC, will recommend to the Local Disaster Management
Group that a Local Disaster Recovery Committee (LDRC) be established to oversee the
recovery from the particular event. The LDMG will then meet and resolve to set up a LDRC,
that resolution will also appoint the Recovery Committee chair (usually the Deputy Chair of
the LDMG.
Disaster recovery is:
“the coordinated process of supporting affected communities in the reconstruction of the built
environment and the restoration of emotional, social, economic, built and natural
environment wellbeing.
Recovery is more than simply the replacement of what has been destroyed and the
rehabilitation of those affected... It provides an opportunity to improve aspects beyond
previous conditions by enhancing social infrastructure, natural and built environments, and
economies.
The manner in which recovery processes are undertaken is critical to their success.
Recovery is best achieved when the affected community is able to exercise a high degree of
self-determination. Well-designed communication plans are also critical to the success of an
affected community’s self-determination.”
(AEMI Community Recovery Handbook, Handbook 2)
Recovery is a fundamental component of disaster management. Figure 1 depicts this in the
inter-relationship between the four elements of the comprehensive approach to disaster
management, - prevention, preparedness, response and recovery.
1
Section 11
Noosa Local Disaster Recovery Plan 2015/2016
Figure 1 – Interaction between prevention, preparedness, response and recovery
(AEMI Community Recovery Handbook, Handbook 2)
Any event that requires significant recovery also provides opportunities to make
communities more resilient for future events. Recovery should be viewed as an opportunity
to enhance disaster resilience.
Effective recovery requires a range of services operating in a coordinated and streamlined
way. The integration of government agencies and government owned corporations, NGOs,
industry groups, the private sector and whole-of-community is the foundation of recovery.
2. Four functions/pillars of recovery
Effective recovery requires an integrated, multi-disciplinary approach. It commences with
detailed needs analysis, consequence management, community engagement and planning
and then moves into service delivery. A coordinated effort by all agencies involved in the
recovery process is necessary. It is a complex and potentially protracted process. To assist
in managing complexity, recovery can be conceptually grouped into four inter-related
functions applicable in an all hazards environment:
economic
environmental
human-social
infrastructure (which can be further broken down sub components such as roads
and bridges; community infrastructure etc)
3. Recovery principles
This plan has been developed in accordance with the following national principles for
recovery agreed in 2008.
understanding the context
2
Section 12
Noosa Local Disaster Recovery Plan 2015/2016
recognising complexity
using community-led approaches
ensuring coordination of all activities
employing effective communication
acknowledging and building capacity (CDSMAC 2009).
These principles are summarised in the following sub paragraphs. Figure 2 depicts these
principles graphically.
Figure 2 – National Recovery Principles
(AEMI Community Recovery Handbook 2)
3.1 Understanding the context
Recovery must be relevant to the communities affected. No two disaster events are the
same and the context of each event needs to be taken into account when planning and
implementing recovery programs and activities. Understanding the impacts and
circumstances of each individual event in the broader context of the Noosa Shire is needed
to ensure recovery effort meets the community need.
3.2 Recognising complexity
Recovery is complex and dynamic. Information on disaster impact is usually limited at first
and then becomes clearer as time passes. There are diverse and sometimes conflicting
needs, wants and expectations within the community which may also change over time. As
a result priorities will shift and change. Recovery actions may require a variety of
approaches and may leave long-term legacies.
The four pillars of recovery often overlap and the relationship, or balance, between them
must be considered based on the context of the event and the community(ies) affected.
This complexity must be recognised by those developing and implementing recovery
programs and activities.
3.3 Using community-led approaches
Recovery should be community led which requires engaging with communities (listening and
talking). It means empowering the community to be involved and enabling their participation
in the recovery process. Communities who have no say in their recovery will take longer to
recover. Building strong partnerships and involving community leaders in the recovery
3
Section 13
Noosa Local Disaster Recovery Plan 2015/2016
process will enable the delivery of recovery programs and activities that are embraced by
the community. 1
3.4 Ensuring coordination of all activities
Successful recovery requires a planned, coordinated and adaptive approach based on
continuous assessment of impact and needs. It requires skilled and trusted leadership,
clearly stated shared goals based on desired outcomes, good information gathering and
planning processes, teamwork among all supporting agencies and community groups, and
clear decision making and reporting structures.
3.5 Employing effective communication
Effective communication is vital to achieve the above principles. It should be relevant, timely,
clear, accurate, targeted, credible and consistent. Communications with the community must
be two way and input and feedback should be sought and considered. Information must be
accessible to a variety of audiences in diverse situations using a variety of means. To
ensure communications are effective and relevant an officer from the council’s community
engagement team needs to be a member of the LDRC
3.6 Acknowledging and building capacity
Successful recovery recognises, supports and builds on community, individual and
organisational capacity. Recovery planners should assess gaps between existing and
required capability and capacity. They should quickly identify and mobilise community skills
and resources and acknowledge that existing resources may be stretched requiring
additional resources to be mobilised. Recovery should consider how to sustain effort over
anticipated recovery timeframes. Opportunities to share transfer and develop knowledge,
skills and training should be promoted. There should be a clear understanding of when and
how to disengage. Disengagement should be well planned and communicated.
4. Re-establishing resilience as soon as possible after an event
One of the aims of recovery is to help re-establish individuals and community resilience.
and to build community connections and assets that support this process as soon as
possible. This means developing strategies with individuals, businesses and communities to
help them prepare for possible events and including these arrangements in relevant plans.
It means working with leaders and their networks to understand what can be improved after
an event to increase individual and community resilience. Recovery provides an opportunity
to rebuild the community back stronger and better.
5. Post disaster psychology
All emergencies cause a range of stressors on the individual resulting in a broad range of
responses. Typically these are ‘normal’ responses to an abnormal event that has touched
the lives of an individual, a family or a community. It is important that those planning
recovery and those implementing recovery services are aware of the psychological effects of
disasters on individuals, families and the community in order to better deliver recovery
outcomes.
Immediately following an emergency, people primarily seek practical assistance and
reassurance in an emotionally supportive manner. The emotional impact of traumatic events
is very real. Strong feelings may arise when the experience is talked about. Increased worry
may interfere with day-to-day living and the experience may leave people shaken and
worried about the future. However, most people return to their ‘usual functioning level’ given
time and the support of family and friends.
1
It is also important to involve community leaders in the preparedness phase to increase community
resilience and decrease the impact of an event and the resultant work needed in the response and
recovery phases.
4
Section 14
Noosa Local Disaster Recovery Plan 2015/2016
The diagram in Appendix 27.1 shows some of the common reactions, experiences and
emotions that may be experienced by individuals and communities following disasters and
before they feel they are able to get ‘back on their feet’.
It is important to note that individual responses will vary and that the cycle is not necessarily
a single or linear one, but may alter, extend, diminish or re-occur at different times
throughout the recovery process. Friends, family and local recovery support services can all
assist in reducing the frustrations and amount of time people spend in the ‘trough of
disillusionment’, or limit the depth of that trough.
If disaster-affected people understand the types of experiences and emotions they may
experience throughout their recovery process, they can establish a stronger understanding
that what they are experiencing is not unusual but is a fairly typical response to a post-
disaster situation. Understanding this may also help people to more strongly understand the
transient nature of these experiences, and that they will get through and recover from a
disaster.
6. Levels of recovery
Recovery typically goes through three levels; Immediate/Short Term (Relief), Medium and
Long Term Recovery. These levels are graphically depicted in Figure 3. Note that the
levels commence during operations and conclude when normal community development
processes are returned.
Figure 3 – Three levels of Recovery
(AEMI Community Recovery Handbook 2)
6.1 Immediate/short term relief
Immediate/short-term relief aims to address and support the immediate needs of individuals,
businesses and the community affected by an event. It often occurs during disaster
response operations.
Immediately after an event there is a need to identify what the impact has been, and what
needs to be done to ensure the safety of life and property, and return the community to
normal. This includes providing services such as:
immediate provision of shelter, food, and clothing and community services
restoration of affected utilities and communications
clearance of debris and other hazards resulting from an event
5
Section 15
Noosa Local Disaster Recovery Plan 2015/2016
This phase of recovery is challenging as it coincides with response operations. It is the
period after a disaster when initial relief services are offered to the affected community and
prior to the full recovery framework is established. It is also the period when detailed
recovery planning, including needs analysis is undertaken.
Relief services provided to the community may take many forms however the operation of
Recovery Centres (One Stop Shops) and Outreach Programs are the primary mechanisms
to provide initial recovery (relief) services and to gather information to support needs
analysis and planning for medium and long term recovery.
The transition from the response and short term relief operations to the next level of
recovery must be carefully managed. When it occurs it will be based on a combination of the
following criteria:
the emergency is contained
search and rescue groups have ceased activity
public safety measures are in place and work effectively
no further hazard or secondary event is likely in the near future
initial rehabilitation has commenced
damage to community infrastructure has been assessed and/or restoration has
commenced
temporary accommodation and services have been2 provided
local organisations which can provide services and/or a hub for services have been
identified and engaged;
local community organisations and cultural groups and their leaders have been identified
and engaged
recovery plans are in place
6.2 Medium term recovery
Medium-term recovery continues the coordinated process of supporting affected
communities in the reconstruction of physical infrastructure, restoration of the economy and
of the environment, and support for the emotional, social, and physical wellbeing of those
affected.
The following recovery activities are conducted during this level:
ongoing needs analysis so that recovery can support the changing recovery needs of
the community
Recovery Action Plans are implemented and progress monitored and reported
continued and enhanced community engagement
continued and enhanced community participation in decision making
plans are continuously updated to reflect changing recovery needs and progress of
recovery
The recovery activities of this stage will assist the affected community to return to a state of
normality although the community is likely to experience changes resulting from the event.
2
6.1 Temporary Accommodation. Where the requirement to provide temporary accommodation
exceeds local ability (evacuation centres, caravan parks, motels) the request is to be passed to
LDMG for assistance from State Recovery Committee
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Noosa Local Disaster Recovery Plan 2015/2016
6.3 Long term recovery
Long Term Recovery involves the ongoing transition from recovery to normal community
development processes. During this stage, most recovery workers leave and systems start
to wind down as normal business processes return. It is important that this reduction in
recovery support is managed and that documented arrangements are in place locally to
continue to address individual and community recovery needs.
7. Summary
Figure 4 depicts the community driven recovery process as described in this part.
Figure 4 – Community driven Recovery Process
(AEMI Community Recovery Handbook 2)
7
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Noosa Local Disaster Recovery Plan 2015/2016
Part B – Recovery Arrangements
8. Recovery in the Noosa context
Successful recovery requires an understanding of the context in which the recovery effort
applies. Determining what needs to be done in recovering the community depends on an
understanding of how any particular disaster changes the community from what is
considered normal.
8.1 Community profiles
Profiles of the community across the four pillars of recovery provide recovery planners with a
baseline of what is considered normal in the community. The impact of a disaster can then
be compared to this baseline (profile) to assist in determining where recovery effort is
needed. Profiles for each of the four pillars (Human/Social, Infrastructure, Economic and
Environment) are provided in Appendices 27.2, 27.3, 27.4 and 27.5 to this plan.
9. Queensland’s recovery framework
Figure 5 – Recovery Reporting and Resource Flow
(Queensland Recovery Guidelines)
9.1 Authority for recovery
Noosa Council has the primary responsibility for planning and coordinating recovery
operations within the Noosa Shire. It will be supported in these endeavors by the State and
Australian Governments and the community.
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Noosa Local Disaster Recovery Plan 2015/2016
10. Noosa recovery framework
10.1 Recovery concept of operations
Recovery in Noosa will be planned and coordinated by a Local Disaster Recovery
Committee (LDRC) once it has been established by the LDMG. This group will be chaired
by the Deputy Chair of the LDMG and recovery operations will be coordinated by the Local
Recovery Coordinator. The LDRC will be supported in its efforts by relevant State and
Australian Government agencies.
Depending on the scale of the event and the complexity of the recovery effort, the LDRC
may establish up to four separate sub-groups to address each of the four pillars of recovery.
The LDRC will maintain a permanent core membership of Council officers to lead individual
sub-groups when they are established. When the LDRC is activated the core group will be
augmented by additional members representing the community, business and the State and
Federal Governments.
The number of sub-groups, their terms of reference and their membership will be dependent
on the type of event, the needs of the community and the scale of the recovery effort.
Local Advisory Groups may be formed to ensure community participation in the recovery
process and to assist the LDRC and sub-groups in determining community need and service
delivery of recovery programs and activities.
An overview of this framework is provided in Figure 5.
10.2 Core Noosa Local Disaster Recovery Committee membership
Chair Deputy Chair of LDMG
Local Recovery Coordinator Director Community Services
Coordinator Infrastructure sub-group Infrastructure Planning and Design Manager,
Coordinator Environmental sub-group Planning and Environment Manager,
Coordinator Community sub-group Community Development Coordinator
Coordinator Economic sub-group Executive Manager Executive Office
Media Liaison Appointed by the Community Engagement
Manager
Volunteer Coordinator Appointed by the Community Development,
Coordinator
Administration Officer Appointed by the Local Recovery Coordinator
State Agency Representatives Appointed in consultation with the Sunshine
Coast District Disaster Coordinator
Community Representatives Appointed on an as needs basis
Business and Industry Representatives Appointed on an as needs basis
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Noosa Local Disaster Recovery Plan 2015/2016
Figure 6 – Noosa Recovery Framework
10
Noosa Local Disaster Recovery Plan 2015/2016
State
Recovery
Group
R i R
E Liaison E
S i P
0 Disaster °
U District R
R T
Cc
E Liaison N
S G
Local
Recovery
Group
Resources & Reporting
. / Infrastructure Economic Environment
Human . .
Social
Local Advisory Local Advisory
Group Group
roup Group
Figure 6 — Noosa Recovery Framework
10Section 20
Noosa Local Disaster Recovery Plan 2015/2016
10.3 Local Recovery Coordinator
The Local Recovery Coordinator (LRC) is appointed as a function within the LDMG to
ensure recovery preparedness and to lead recovery operations. The person appointed as
the LRC cannot be the same person as the LDC as disaster operations and recovery
planning need to occur simultaneously.
The Noosa Council has appointed the Director of Community Services to be the Noosa
Local Recovery Coordinator.
The role of the LRC is to:
maintain this plan
develop community recovery preparedness
ensure ongoing analysis of need is undertaken throughout the recovery effort to guide
the recovery effort
work with the group, relevant agencies and the community to develop the specific aim,
objectives and strategies of the Recovery Operational Plan
liaise with functional lead agency representatives to obtain required support for recovery
programs and activities
manage the implementation of the Recovery Operational Plan and Sub-group Action
Plans with the assistance of the LDRC, Sub-groups, Disaster District and SRG
report on the recovery effort to the Disaster District, and the State Recovery Coordinator
as well as the community
The LRC and the LDC should liaise regularly during disaster response operations. This will
ensure that disaster response operations support the recovery effort and recovery planners
have good situational awareness to ensure their planning is relevant to the community.
The LRC should be involved in disaster response planning and implementation in addition to
the role of leading the recovery effort. This duality of roles immediately after disaster impact
is often inevitable given the limited management resources available within the Noosa Shire.
While the LRC may need to be involved in operational response matters from time to time,
they should focus on the recovery implications of such matters to ensure response supports
the recovery effort.
10.4 Noosa Local Disaster Recovery Committee
The Noosa Local Disaster Recovery Committee (LDRC) is the planning and coordinating
body for all recovery operations in the Noosa Shire. It comprises key decision makers from
the community and multiple agencies and entities that contribute to the recovery effort. The
Terms of Reference for the Local Disaster Recovery Committee is shown in Appendix 27.6.
The LDRC is activated by decision of the LDMG during a disaster event (see more under
Activation).
The composition of the LDRC is dependent on the nature of the event and the analysis of
need within the community. Full membership of the LDRC is therefore situation dependent.
Core members of the Local Disaster Recovery Committee are detailed in the Committee’s
terms of reference. Core members are those individuals and agencies that have a clear
function in the recovery effort and who form the basis of the full Local Disaster Recovery
Committee. The core members of the Noosa Local Disaster Recovery Committee may
convene when not activated in order to develop recovery preparedness at the discretion of
the Chair of the LDRC, or the LRC.
Additional members may be appointed to support recovery operations by the LRC after
approval of the LDMG. A list of agencies and entities that may be considered for inclusion
on the LDRC is provided in the terms of reference.
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Noosa Local Disaster Recovery Plan 2015/2016
10.5 Sub-groups
Up to four sub-groups may be established to address each of the four pillars of recovery in
the Noosa Shire.
These sub-groups are:
human/social sub-group
infrastructure sub-group
economic sub-group
environment sub-group
Generic terms of reference for each sub-group are provided at Appendix 27.7. These may
be modified to suit the situation by the LRC after consultation with the LDRC.
Sub-groups are “working groups” of the LDRC and comprise the subject matter specialists
relevant to a particular pillar of recovery. They develop and oversee the implementation of
the plans, activities and programs related to their recovery function.
The formation of sub-groups is at the discretion of the LDRC based on the community
recovery needs analysis. The LDRC may decide to merge two or more sub-groups together
for greater effectiveness or efficiencies.
Membership of the sub-groups shall comprise LDRC Core members augmented by State
and Australian Government agency representatives, industry bodies and community groups
as required and depending upon the scale of the event and recovery operations required.
Membership of each group is dependent on the situation however a suggested membership
for each sub-group is provided in the sub-group’s terms of reference.
10.6 Local advisory groups
Local advisory groups may be established to enable members of the local community,
including people affected by the event and representatives from local organisations, to meet
and to provide input and guidance to LDRC and Sub-groups on such issues as community
needs and service delivery. The formation and composition of any Local Advisory Groups is
at the discretion of the LDRC and is dependent on the needs of the community. A guide to
possible local advisory groups that may be established is shown in Appendix 27.8.
10.7 Supporting agencies
Many agencies and organisations contribute in some way to recovery efforts. To assist in
the formation of the LDRC, sub-groups and Local Advisory Groups, a list of agencies and
community organisations that may assist in recovery is provided at Appendix 27.9. This list
identifies the functions these organisations may offer to support recovery operations.
11. Governance arrangements
11.1 Appointments
Chair of the Local Disaster Recovery Committee. In establishing the Local Disaster
Recovery Committee the Noosa Local Disaster Management Group will appoint a Chair
of the LDRC for that event. Usually this will be the Deputy Chair of the LDMG.
Local Recovery Coordinator. The Noosa Shire Council shall appoint a person
possessing the requisite skills and authority as the Local Recovery Coordinator to the
LDMG; the appointment letter is to be retained on file by Noosa Shire Council. The
District Disaster Coordinator and the Chair of the State Recovery Group are to be
advised of the LRC appointments. The Local Recovery Coordinator is to be identified in
the Recovery Plan.
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Noosa Local Disaster Recovery Plan 2015/2016
Local Disaster Recovery Committee (Core). Core members of the LDRC as defined
in Appendix 27.6 are appointed by the Chair of the LDMG under this plan. Additional
members will be identified and appointed to the Local Disaster Recovery Committee by
the Chair of the Local Disaster Recovery Committee during the Lean Forward stage of
recovery activation. Membership of the LDRC should be detailed in the Recovery
Operational Plan.
Sub-groups. Members of sub-groups will be drawn from the LDRC and additional
members may be invited from relevant organisations at the discretion of the Chair of the
sub-group in consultation with the LRC. Membership of sub-groups is to be recorded in
the Recovery Operational Plan.
11.2 Meetings of the Local Disaster Recovery Committee and sub-
groups
Once activated the LDRC and sub-groups should meet regularly to perform their functions.
Meetings of the LDRC shall be at times and in places as determined by the Chair of the
LDRC.
There shall be a meeting of the Noosa Local Disaster Recovery Committee chaired by the
Deputy Chair of the LDMG and key members of the sub-groups at least once but ideally
twice a year, once before the storm season and once after the season.
Sub-group meetings shall be at times and places as determined by the appointed
Coordinator of the Sub-group after consultation with the LRC.3
11.3 Records of meetings
The LDRC and each sub-group will keep minutes of all meetings. In addition the LDRC is to
develop and maintain the Recovery Plan and sub-groups are to develop and maintain action
plans relevant to their function. These will be the principle reference documents used by
the LDRC and the sub-groups in the performance and reporting of their functions.
11.4 Reporting
Regular reporting is required to ensure effective coordination and monitoring of progress and
use of resources.
Upon activation the LDRC for Noosa shall report regularly to the LDMG. The LRC will also
negotiate with the Sunshine Coast Disaster District and the State Recovery Coordinator to
establish their reporting requirements.
Reporting by the sub-groups to the LDRC shall be at the discretion of the LRC after
consultation with the LDRC and the Chairs of the sub-groups.
Report formats may be negotiated, however, the LDRC is to provide regular updates on the
Recovery Operational Plan to the Disaster District and SRG. Sub-groups are to provide
regular updates on their Action Plans to the LDRC. Reporting formats are to be primarily
based on these two documents. Additional information may be required by the District, the
State Recovery Coordinator or State Recovery Group.
11.5 Disaster District role
The local level is the entry point for recovery. While the Disaster District will usually stand
down from response operations when recovery operations begin or shortly thereafter, it is
expected that members of the District Disaster Management Group and other State
Government agencies will continue to provide State Government services to support
recovery efforts in the Noosa Shire.
3
A secretariat position is required to support the LDRC to maintain all administration functions
relating to the plan, the committee and the LRC
13
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Noosa Local Disaster Recovery Plan 2015/2016
The four State Government Functional Lead Agencies for recovery are represented at the
Disaster District level and will coordinate the provision of State recovery resources within the
District to the affected area. These services should be coordinated through the LDRC using
agreed service delivery arrangements.
Disaster District members will often be asked to contribute to the recovery effort through
participation on the Local Disaster Recovery Committee or its sub-groups as appropriate.4
Furthermore ongoing liaison with the Disaster District Coordinator (DDC) and the District
Disaster Coordinator’s Executive Officer on recovery matters is necessary to ensure support
from the State through the Disaster District is relevant and coordinated. Reporting on the
recovery effort should be provided to the district to assist in coordination and district level
planning. The concept of recovery information and resources flow in Queensland is
depicted in Figure 4.
11.6 Functional lead agencies (state level)
Under the State Disaster Management Plan, key state government departments are defined
as functional lead agencies for the four functions of recovery. These functional lead
agencies are appointed to assist in the coordination of State level support to the local
recovery effort. The state functional lead agencies for recovery are detailed in Table 1.
Function Lead Agency (State and District Level)
Economic Department of State Development, Infrastructure and Planning
Environmental Department of Environment and Heritage Protection
Human-social Department of Communities, Child Safety and Disability Services
Infrastructure Transportation infrastructure: Department of Transport and Main
Roads
Building recovery: Department of Housing and Public Works
Energy infrastructure (electricity, gas, fuel): Department of
Energy and water supply
Water supply and sewerage Infrastructure: Department of Energy
and Water Supply
Water entities: Unitywater
Telecommunications: Telstra; and other telecommunications
providers
NDRRA and SDRA
Queensland Reconstruction Authority
coordination
Recovery
coordination and Queensland Reconstruction Authority
monitoring
(coordination function)
Table 1 – Functional Lead Agencies (State level)
(Queensland Recovery Guidelines)
11.7 Establishment of a statutory authority by the State
In circumstances deemed appropriate by the Premier, the recovery structure for the State
may be determined by the Premier, under the auspices of a Task Force or Statutory
Authority. The Premier, and where necessary the Queensland Parliament, will determine the
4
State agencies do not require approval or permission from the DDC to assist or sit on the Local
Recovery Committee Sub Groups. State Agencies are involved in the Local Recovery Committee as
part of their normal business. The Local Recovery Coordinator can approach any State Agency for
assistance.
14
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Noosa Local Disaster Recovery Plan 2015/2016
level of authority and powers given to the Task Force or Statutory Authority for central
coordination, support and overall direction of resource allocation. The accountability
structures, role and powers for the Task Force or Statutory Authority will be determined by
the Premier and/or Queensland Parliament. For example, the QRA was established in 2011
and is currently the functional lead agency for NDRRA and SDRA coordination and central
recovery coordination and monitoring.
11.8 Establishment of State Recovery Coordinators
Equally, the state may choose to establish one or more State Recovery Coordinators to
assist in ensuring a cohesive recovery and reconstruction program. Such appointments will
be made by the Premier and will usually be individuals of high standing in the general
community. They may be appointed in recognition of unique regional recovery and
reconstruction requirements. State Recovery Coordinators will act as a focal point for
recovery and reconstruction between the affected region and the State Government through
the Minister for Local Government, Community Recovery and Resilience. If a State
Recovery Coordinator responsible for the Noosa is established, they should be included as a
member of the Local Disaster Recovery Committee.
11.9 State Recovery Group
The State Recovery Group is a standing group which reports to the State Disaster
Management Group. The functional lead agencies for each of the four functions of recovery
are represented on the Group. At the decision of the Chair, other agencies may be invited to
become members of the Group. The State Recovery Group Is responsible for ensuring the
state support across the four functions of recovery are implemented and coordinated in
support of local recovery efforts.
Figure 5 – Recovery Reporting and Resource Flow
(Queensland Recovery Guidelines)
12. Recovery preparedness
Recovery preparedness can be achieved by:
ensuring that the Noosa recovery framework and arrangements are widely understood
within the community (pre-engagement)
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Noosa Local Disaster Recovery Plan 2015/2016
training of Council staff and supporting agencies in recovery processes
12.1 Pre-engagement with the community
This plan will be made publicly available on the Council’s website. Copies will also be
provided to public libraries.
This plan is to be provided to members of the public on request. Ongoing public information
about recovery and the Noosa Recovery Framework should be provided using normal
community engagement strategies (media, Council Facebook, etc).
12.2 Pre-engagement with potential advisory groups
Contact with prospective members of Local Advisory Groups can be undertaken to advise
them of the possible formation of such groups and their possible involvement. Prior
engagement with prospective members of Advisory Groups familiarises them with the Noosa
recovery framework and provides an opportunity for network building under that framework.
The Noosa LDMG will consider an ongoing program of pre-engagement with potential local
advisory groups.
12.3 Training in recovery processes
Training people with key functions in recovery is necessary to ensure they are able to
perform their functions in an event. Recovery training in the Noosa Shire is to be focused
on developing knowledge of recovery principles and arrangements and skill development in
Community Needs Analysis and Operational and Action Planning. Recovery training is also
discussed in Section 14.0.
13. Recovery concepts of operation
13.1 Recovery process
Recovery is a progressive activity that involves many steps. The timeframes for each of
these steps is dictated by the situation. The main steps in recovery are depicted in Table 2.
Recovery Step Description Remarks
Ongoing under the
Undertake recovery preparedness including
Pre-event direction of the LDMG,
training, exercises, network management, and
preparedness LRC and core members
community engagement.
of the LDRC.
LDMG resolves to form a LDRC and appoints the
LDRC Chair (usually the Deputy Chair of the
LDMG) depending upon the impact of the event
and the primary recovery requirements.
Commence
Establishment of the LDRC and identification of
communication with
possible stakeholders to be included on the
stakeholders.
committee.
Distribute Situation
Build situational awareness within the LDRC and
Activation Reports (may be formal
agencies / organisations supporting recovery.
or informal)
Work with response operations in the Local
Recovery is represented
Disaster Coordination Centre to influence
in the decision making
operational decisions that have recovery
processes for disaster
implications; and to build situational awareness for
response.
recovery planning.
Oversee and coordinate the ongoing provision of
short term recovery (relief) services to impacted
communities.
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Noosa Local Disaster Recovery Plan 2015/2016
Recovery Step Description Remarks
This is an iterative
Undertake analyses of community need across
process and the analysis
Needs Analysis the four pillars of recovery and/or by sectors.
will change over time as
Engage widely across the community to ensure
situational awareness
analysis is comprehensive.
improves
Finalise membership of LDRC to include
Establish community and state agency representatives.
Recovery
Establish Sub-groups and Local Advisory Groups
Framework as dictated by needs analysis.
These steps are often
Document and distribute the operational plan for
Develop undertaken concurrently.
the recovery.
Recovery
Operational Plan Maintain plan throughout recovery process.
Sub-groups Sub-groups develop Action Plans for their
Develop Action function.
Plans
This process may go for
Continue to deliver recovery services as outlined many weeks or months
in the Recovery Operational Plan and as detailed (or years in extreme
in Sub-group Action Plans. cases).
Medium Level
Recovery Maintain and update the Recovery Operational The LDRC must strive to
Plan and Sub-group Action Plans as recovery sustain effort in
progresses. accordance with
priorities.
Progressively close: Must have transitional
arrangements in place.
Local Advisory Groups
Transition to Close Sub-groups Suitable alternate
Long Term Close LDRC process must be in place
Recovery to support long term
Debrief/Review/Evaluation of the recovery effort. recovery needs.
Submit final report on recovery to the LDMG Update plans.
Table 2 – Main Steps in the Recovery Process
13.2 Activation
The Recovery process is activated in the same manner as disaster operations through four
levels of activation. They are:
Alert
Lean Forward
Stand Up
Stand Down
The LRC should be notified once the LDMG goes to Lean Forward, or in short/no notice
events, when the LDMG is activated to Stand Up. This is to ensure that the recovery
framework can be established based on the emerging and anticipated needs of the
community. The LDRC needs to have a representative present at the LDCC intelligence cell
(usually the LRC) when the initial damage assessment functions are undertaken during
Disaster Operations. This will assist the LDRC in developing their recovery plan. It also
ensures that disaster operations consider the needs of recovery during the response phase.
The diagram in Figure 6 depicts the activation of recovery relative to the response.
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Noosa Local Disaster Recovery Plan 2015/2016
Figure 7 – Response and Recovery Levels of Activation
(Queensland Recovery Guidelines)
13.3 Activation process and transition between levels
The LRC activates the Recovery Group in accordance with the diagram at Figure 7 above.
The transitions between these levels are crucial periods for recovery as the recovery
activities undertaken at each level are fundamentally different.
Table 3 details the major recovery triggers, actions and communication requirements apply
to each level of activation. Note that the levels of activation are aligned with the three levels
of recovery (short, medium and long term).
Response
Triggers Actions Communications
Alert
LDMG ‘Lean The LRC is briefed by the Local LDC maintains
Forward’ level of Disaster Coordinator when the communication with Local
Response Lean Forward
activation initial damage assessment Disaster Recovery
functions are undertaken during Coordinator who in turn
Disaster Operations, This will liaises with core members
assist the LDRC in developing of the LDRC.
Recovery Alert
their recovery plan. Ad hoc reporting as
Core members of the LDRC self- required by the LDC
activate and commence to gain
situational awareness of the
event.
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Noosa Local Disaster Recovery Plan 2015/2016
‘Stand Up’ of LDMG. DDC and SRG informed of LRC and LDRC members
LDMG assesses establishment of LDMG in routine contact and
event impact and Response commences. monitoring email remotely.
decides to activate LRC monitors response activities Local Disaster Recovery
the LDRC LRC analyses hazard impact or Committee has an initial
Immediate Relief potential impact meeting for planning
arrangements are Relief and recovery planning purposes.
put in place commences through needs More regular reporting as
analysis and recovery required by the LRC and by
operational planning. the Disaster District and
LDRC and Sub-group structures SRG.
finalised along with reporting Community engagement
requirements. and communication
Deployments for immediate relief strategy developed by
Recovery Lean Forward
may be commenced by recovery LDRC.
functional agencies.
Response Stand Up
Completion of initial needs
analysis, finalisation of LDRC
and Sub-group membership and
issue of Recovery Operational
Plan signal readiness to move
the LDRC to Stand Up and
commence Medium Term
Recovery operations.
Immediate relief Transition arrangements from Local Disaster Recovery
arrangements ‘response and relief’ to ‘medium Committee and sub
continue term recovery’ undertaken committees met regularly.
Medium Term including formal hand over from Community engagement
recovery LDC to LRC. and communication
commences. Local Disaster Recovery strategy implemented.
Response Phase Committee activated to operate
moves to ‘Stand from Noosa Shire Council
Down’. offices.
DDC and SRG informed of the
activation level of the LDRC and
transitional arrangements.
Deployments from functional
agencies continue to provide
immediate relief response.
Response Stand Down
Action Plans developed
addressing the four functions of
Recovery Stand Up
recovery.
Participate in response debrief.
Action Plans monitored and
acted on.
Regular reporting to the Noosa
LDMG the DDC and the SRG
continues.
LDRC completes its LDMG, DDC and SRG informed As action items in the
tasks contained in of date for LDRC to stand down . recovery plan are
the operational plan. Financial records consolidate. completed LDRC members
Recovery Stand Down
The community Reporting requirements finalised. and ultimately the LRC
returns to normal Participate in recovery review resume standard business
activities with and assessment. arrangements.
ongoing long term Long term recovery LDRC stands down.
recovery support arrangements transferred to
provided as required functional lead agencies
under pre-agreed including Council.
arrangements and Return to Core Business
processes.
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Noosa Local Disaster Recovery Plan 2015/2016
The recovery The LDMG or the Chair of the Chair of LDRC seeks
committee can be LDRC can reconvene the approval of LDMG to
reconvened after it Recovery Committee if required. reconvene
has stood down from The LDMG is informed that the
an event if new Recovery committee will
issues come to light reconvene.
RECONVENE RECOVERY
e.g. Identification of The reconvened LDRC to
primary producers consult with LRC for briefing and
hardship some handover
weeks after the
event
COMMITTEE
Table 3 – Recovery Activation, Triggers and Actions
(Queensland Recovery Guidelines)
13.4 Transitioning from immediate/short term relief to medium level
recovery
The following are required before finalising the transition from short term relief to medium
level recovery:
Completion of a community needs analysis across the four pillars of recovery that
defines the community’s recovery needs and which establishes priorities for the
recovery effort and the resources required. This needs analysis will continue to be
updated throughout the recovery process.
Full membership of the Local Disaster Recovery Committee is finalised as are reporting
requirements to the LDMG, the DDMG and SRG.
Sub-groups are established as required and membership and terms of reference for
each are confirmed.
The Recovery Operational Plan outlining the aim, objectives and strategies for the
recovery effort is finalised.
The community engagement strategy is finalised and detailed in the Recovery
Operational Plan.
Sub-group action plans are well developed and outline relevant recovery programs and
activities.
13.5 Transitioning to long term recovery
Long term recovery requires functional lead agencies, Noosa Council and the community to
put in place systems and processes that ensure the ongoing provision of recovery support to
those who need it after the departure of recovery workers from the disaster area. These
arrangements should be included in the Operational and Action plans for the event.
13.6 Community needs analysis
Community need is the driver for all recovery operations. It is imperative that analysis of
community need is undertaken and regularly reviewed to ensure recovery operations are
correctly focused and resourced.
The purpose of a community recovery needs analysis is to pull together information into a
single, consolidated report; information on the physical impacts of a disaster, the economic
value of the damages and losses, the human impacts as experienced by the affected
population, and the resulting medium and long-term recovery needs and priorities.
Needs analysis begins when the Recovery process is first activated and continues through
all levels of recovery. Stand down from recovery is possible only when all community needs
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Noosa Local Disaster Recovery Plan 2015/2016
have been met; or where normal processes are in place to meet ongoing community
recovery needs.
Needs Analysis is about assessing what has changed within a community from the normal
baseline and what programs and activities must be undertaken to assist the community to
return to normal. These assessments, from which the needs analysis is done, are generally
commenced during disaster response operations.
Community needs analysis underpins the development of the Recovery Operational Plan.
Ongoing needs analyses throughout the recovery process will inform the evolution of this
plan through the three levels of recovery (short/medium/long term) Figure 7 depicts this
concept graphically.
The LDC is responsible for ensuring that a rapid damage assessment and a preliminary
community needs analysis is undertaken prior to the establishment of the Recovery
Committee and the LDRC and the LRC are responsible thereafter to ensure that ongoing
needs analysis are undertaken to inform the transition between the three levels of recovery.
Community Needs Analysis relies on the experience and local knowledge of the members of
the LDMG, the LDRC, Sub-groups and Local Advisory Groups combining to identify all
aspects of community need throughout the recovery effort. Those undertaking needs
analysis must have sound situational awareness emphasizing the need for early activation of
Recovery during the disaster response phase and effective communications throughout
recovery.
Impact assessments and Rapid Damage Assessments undertaken to support disaster
response operations are a foundation of Community Needs Analysis.
Figure 8 – The Recovery Needs Analysis Concept
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Noosa Local Disaster Recovery Plan 2015/2016
13.6.1 Format / process for community needs analysis
There is no prescribed format or process for the conduct of community needs analysis
following a disaster event as each function of recovery will need to apply specific processes
to determine need relevant to their function. For example, the process and considerations
for an economic needs analysis (economic impact assessment) will be significantly different
to that undertaken in the environment, infrastructure or the human/social pillars of recovery.
Each of them will also be different to the others.
13.6.2 Undertaking needs analysis by sector
Needs analysis may also be undertaken by community sectors. Table 4 details the
community sectors that may be considered when undertaking community needs analysis
using a sector based approach. The LDRC may need to engage with representatives from
these sectors when undertaking needs analysis.
Health, Aged Care Education Industry & Retail Essential Services
Transport &
Sport & Recreation Retail & Business Communications
Distribution
Community
Rural Residential Urban Residential Energy
Services
Tourism and Individuals and Emergency
Primary Producers
Recreation Families Services
Environmental
Building Youth
Care
Table 4 – Community Sectors that may be considered in Community Needs Analysis
Selection of the correct people to the LDRC and Sub-groups is important. Development of
appropriate local advisory groups with well thought out and diverse representation from the
community will assist greatly in undertaking community needs analysis.
13.7 Establish recovery framework
The Chair of the LDRC will likely need to augment the core membership of the LDRC to
ensure representation by those who will contribute resources and services to the recovery
effort as defined in the needs analysis. Such representatives should have appropriate
authority within their organisation to mobilise resources and services in support of recovery.
Supporting organisations that may assist in recovery are identified in the Terms of
Reference for the Local Disaster Recovery Committee and individual Sub-groups.
13.8 The Recovery Operational Plan
The Recovery Operational Plan is a strategic level document developed during the Lean
Forward and Stand Up stages of recovery activation. It is prepared by the LRC with input
from the LDRC, its sub-groups and the community and is approved by the LDMG. It details
the recovery aim, objectives and strategies to address identified community needs across
the four pillars of recovery.
The LDRC, sub-groups and local advisory groups are responsible for assisting the LRC
implement the Recovery Operational Plan. Implementation is through Action Plans
developed and maintained by each sub-group.
The Recovery Operational Plan is a dynamic document that is reviewed and updated
regularly to reflect the changing circumstances as defined by ongoing community needs
analysis. It should be version controlled.
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Recovery operational planning is similar to response operational planning in that it is a
strategic plan specific to the event and the recovery requirements identified during
community needs analysis. It is the primary mechanism used to ‘operationalise’ the
recovery effort.
For ease of production, the Recovery Operational Plan may be developed and distributed in
the SMEAC format used for response operational plans.
Table 5 outlines the elements of SMEAC and their meaning in a recovery context.
An analysis of the current and projected situation to determine:
impact of the disaster across the four pillars of recovery and/or by
sector
analysis of community needs across the four pillars e.g. analysis of
Situation
the difference between the normal community baseline and the
current situation.
opportunities and challenges arising from the needs analysis
key timeframes relevant to recovery operations
What we have to do.
Mission (Aim & It includes the aim of the recovery effort and may include several
Objectives) objectives to be achieved. Objectives should be S.M.A.R.T e.g. Specific,
Measurable, Achievable, Relevant and contain a Timeframe.
A description of how we are going to undertake recovery across the four
pillars of recovery.
These are broad statements of intent that are amplified in sub-group
Execution action plans.
Detail the agencies who will contribute to the recovery effort and the
services they will need to offer.
Specify performance indicators.
Administration and How we intend to resource and administer the strategies above. Specify
Logistics extraordinary resourcing or logistics necessary.
Outline the recovery framework adopted for this event and detail
membership of the LDRC, Sub-groups and Local Advisory Groups.
Command, Control
Outline communications strategy.
Communications
Specify reporting requirements for the LDRC, Sub-groups and Local
Advisory Groups.
Table 5 – SMEAC Structure for Operational Planning
The Recovery Operational Plan should be provided to all stakeholders involved in
community recovery including the District Disaster Coordinator, the State Recovery
Coordinator and State Recovery Group. Copies may be provided to statutory bodies
established by the State e.g. the Queensland Reconstruction Authority.
An example format of a Recovery Operational Plan using the SMEAC format is at Appendix
27.10. This format is a suggested format and may be changed to suit the circumstances of
the event.
13.9 Action plans
Action plans are the primary tool used by sub-groups to manage the recovery effort. They
too are a mechanism to ‘operationalise’ the recovery effort. Action plans are the detailed
plans developed, maintained and implemented by individual recovery sub-groups. Each
sub-group’s action plan will specify the programs, activities, agencies, resources and
timeframes required in order to achieve the objectives and strategies specified in the
Recovery Operational Plan. Routine reporting by the sub-group to the LDRC on the
progress of their action plans is required to ensure the overall recovery effort is proceeding
as planned.
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A suggested action plan format is at Appendix 27.11.
14. Community engagement strategies
The LRC and the LDRC must consider the community engagement strategies that will be
needed to ensure the community is involved and effectively contributes to the recovery
effort. The LDRC should consider the stakeholders and how best to engage with them
during the stages of recovery planning. Community engagement for recovery should use
normal community engagement processes as detailed in the Local Disaster Management
Plan. They should be documented in the Recovery Operational Plan. Two specific
strategies to engage with the community during recovery are local advisory groups and the
conduct of public forums or community meetings.
14.1 Local advisory groups
Forming local advisory groups are often an effective way of involving the community in the
recovery effort. These groups may be geographically based (a town or locality); or they
may be functionally based e.g. economic, environmental, infrastructure or human/social.
The formation, composition and terms of reference of these Local Advisory Groups will
depend on the needs of the community and the willingness of the community to participate
(note members of the community may not have the capacity to participate).
They are formed at the discretion of the LDRC and Sub-groups as required. Local Advisory
Groups have no defined structure or governance arrangements. They may have a pre-
defined membership or be ad-hoc in nature. They provide a mechanism to enable effective
engagement with the community for planning and decision making.
14.2 Public forums and community meetings
Public forums and/or community meetings may be called in order to listen to and talk with
communities affected by the disaster. They are useful in the needs analysis process and
should be undertaken throughout recovery to maintain public dialogue, resolve issues and to
gauge recovery progress.
Public forums are often specific to a particular function e.g.: a public forum for businesses
that are economically affected by the event; or land owners affected by environmental issues
arising from the disaster. Community meetings are usually geographically focused and often
cover a broad suite of issues across the four pillars of recovery. They are conducted at the
discretion of the LDRC and Sub-groups as required. Local Advisory Groups may augment
public forums and community meetings.
It is important that such meetings/forums are accessible, well promoted and involve
community and business leaders who can disseminate information to and from the
community.
It can be valuable, where possible, to identify and utilize existing community events or
activities where the community gathers rather than initiate an additional activity that the
community may be hesitant to attend that is not in a community environment that they feel
comfortable with and trust.
15. Training and exercising
15.1 Training
Core members of the LDRC are required to undertake specific training in disaster
management and recovery under the Queensland Disaster Management Training
Framework. This training includes:
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Queensland Disaster Management Arrangements
Local Recovery Coordinator Induction
Recovery Module 1 – Principles, Functions and Governance
Recovery Module 2 – Planning and Preparedness
Recovery Module 3 – Recovery Operations
This training is provided by Queensland Fire and Emergency Services (QFES). QFES also
maintain records of people undertaking disaster management and recovery training.
Persons from other organisations and entities who will play a role in supporting this
Recovery Plan may also benefit from attendance on these training courses and should be
encouraged to participate where possible.
The LRC is to negotiate with QFES for provision of appropriate training for those involved in
recovery as part of the LRC’s role of developing community recovery preparedness.
Training of persons with key roles in recovery processes is also necessary. The Noosa
LDRC training priorities are developing widespread knowledge of recovery principles and
arrangements skill development in Community Needs Analysis and Operational and Action
Planning.
15.2 Exercising
The LRC in consultation with the LDC will determine an exercise schedule for this Plan
however a recovery exercise once every two years is considered appropriate. Participants
should include the Core members of the LDRC and key members of the LDMG including the
Chair and the LDC along with anticipated members of the LDRC.
Such an exercise may take the form of a scenario based desktop discussion conducted over
a period of 3-5 hours that addresses key components of this plan against a realistic
scenario(s).
The LRC should seek the assistance of QFES and the recovery functional lead agencies on
the Disaster District Management Group to assist in the development, delivery and
evaluation of these exercises.
The initial priority for recovery exercising is in the immediate / short term (relief) stage and
the undertaking of needs assessments. These are the building blocks for successful
recovery.
16. Financing Recovery
16.1 Natural Disaster Relief and Recovery Arrangements (NDRRA)
Recognising that in a major event it is unlikely that individuals, businesses and local
community organisations will have the necessary financial resources to fund their recovery
the Federal and State Governments have put in place a number of emergency assistance
packages and other funding arrangements. These are known as the Natural Disaster Relief
and Recovery Arrangements (NDRRA).
The current Australian Government NDRRA Determination details the financial measures
available and their eligibility. The Determination states that an eligible measure is an act of
relief or recovery that is:
carried out to alleviate damage or distress arising as a direct result of a natural disaster,
and
of a type described as a Category A, Category B, Category C or Category D measure
As the exact nature of these funding arrangements can vary from year to year and from
event to event it will be necessary for the Noosa Local Disaster Recovery Committee, once it
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has been activated, to understand the exact nature and details of NDRRA funding that
pertains to that event.
A full description of the latest Federal Government funding arrangements is provided on the
Australian Government’s Attorney General Department’s Disaster Assist website:
http://www.disasterassist.gov.au.
The Queensland Disaster Relief and Recovery Arrangements – guidelines are available on
the State Government’s website: http://disaster.qld.gov.au/.
16.2 Category A and B arrangements
The Category A measure is a form of emergency assistance that is given to individuals to
alleviate their personal hardship or distress arising as a direct result of a natural disaster.
Assistance may be for one or more of the following:
emergency food, clothing or temporary accommodation
repair or replacement of essential items of furniture and personal effects;
essential repairs to housing, including temporary repairs and repairs necessary to
restore housing to a habitable condition
demolition or rebuilding to restore housing to a habitable condition
removal of debris from residential properties to make them safe and habitable
extraordinary counter disaster operations of direct assistance to an individual (for
example, operations to protect a threatened house or render a damaged house safe
and habitable)
personal and financial counselling aimed at alleviating personal hardship and distress
arising as a direct result of the natural disaster
extraordinary costs associated with the delivery of any of the above forms of assistance
(for example, costs of evacuation or establishment and operation of evacuation centres
and recovery centres, being costs which exceed the costs that a state could reasonably
have expected to incur for these purposes)
The Category B measure is assistance of one of the following types:
restoration or replacement of certain essential public assets damaged as a direct result
of a natural disaster
loans, subsidies or grants list in the Commonwealth Determination to alleviate the
financial burden of costs incurred by certain businesses, primary producers, voluntary
non-profit bodies and individuals as a direct result of a natural disaster
counter disaster operations for the protection of the general public
Category B loans, subsidies or grants may be one or more of the following:
a scheme of loans assistance at a concessional interest rate to needy individuals or
voluntary non-profit bodies
freight subsidy to primary producers
interest rate subsidy to small businesses or primary producers, or
grants to needy individuals or voluntary non-profit bodies
16.3 Category C arrangements
The Category C measure is a community recovery package designed to support a holistic
approach to the recovery of regions, communities or sectors severely affected by a natural
disaster. Funding under Category C arrangements are activated on joint agreement between
Prime Minister and Premier. The package comprises one or more of the following:
16.3.1 Community recovery fund
A community recovery fund is provided in circumstances where a community is severely
affected and needs to restore social networks, community functioning and community
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facilities. Expenditure from the fund is aimed at community recovery, community
development and community capacity building, and is administered by the State
Government in close collaboration with local government bodies or other community bodies.
The amount allotted to a community recovery fund will be determined at time of triggering
assistance.
16.3.2 Recovery grants for small businesses
Grants to small business may be provided where the business sector is severely affected
and the community risks losing essential businesses. Grants to small businesses are aimed
at covering the cost of clean-up and reinstatement, but not at providing compensation for
losses.
16.3.3 Recovery grants for primary producers
Grants to primary producers may be applied where the farming sector is severely affected,
with threats to viability and disruption of production likely to extend beyond the current
season. Grants to primary producers are aimed at covering the cost of clean-up and
reinstatement, but not at providing compensation for losses.
In order to qualify as a Category C measure in relation to a natural disaster, the recovery
assistance must meet the following conditions:
it either meets the intent of the community recovery package, or it contains only
variations that have been approved by the Minister in writing
the use of that assistance has been approved by the Prime Minister in writing in relation
to the disaster, and
it meets any other conditions imposed by the Minister in writing
The LDRC should, in collaboration with the Disaster District, the State Recovery Coordinator
and State Recovery Group, consider proposals for Category C funding for eligible recovery
programs and activities. Early consideration, advocacy and implementation of Category C
funding, where applicable, will greatly assist in reducing anxiety and minimizing losses
among those affected by the disaster.
16.4 Category D arrangements
The Category D measure is an act of relief or recovery carried out to alleviate distress or
damage in circumstances that is, in the opinion of the Minister, exceptional. Category D
arrangements are activated on joint agreement between Prime Minister and Premier when
they are of agreed view that:
the community is severely affected
additional funding is required to meet the particular circumstances of a
severe event, and
there is a need for special assistance above and beyond the standard suite of NDRRA
assistance arises
Category D funding is provided only in exceptional circumstances.
16.5 How to apply for Category C or D funding
Category C and D funding like all NDRRA funding is not automatic and must be based on
defined need within the community. Evidence supporting such a need must be gathered by
the LDRC who should then advocate for the funding through the LDMG, the Disaster District,
and the State Recovery Coordinator.
When advocating for Category C or D funding, the LDRC should gather evidence of disaster
impact, the losses incurred and the effect of such losses on small business and primary
producers and the community in general (community needs analysis).
It is important that the LDRC defines what specific actions / activities are needed to
overcome the impact of the disaster. This is often best described in dollar terms in the form
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of cost/benefit analysis as part of a business case. Emotive argument unsupported by
evidence of cost versus benefit for small business, primary producers or the general
community will be unlikely to be successful in obtaining Category C or D funding. This is
particularly so when advocating for funding under Category C - Community Recovery Fund.
The LDRC will need to define the specific programs and activities that are needed to restore
social networks, community functioning and community facilities in order to achieve effective
recovery, community capacity building and community development. These programs or
activities should address critical matters based on evidence and should be expressed in
terms of costs (tangible and intangible) to the community and the impact of not providing
adequate funding.
In developing a case for Category C or D funding the LDRC will need to be supported by
various State Government departments and agencies as many of the programs and
activities necessary to recover the small business, primary producers and the general
community will be undertaken by state government lead agencies.
For example, the Department of Agriculture, Fisheries and Forestry may assist in providing
both the evidence of need for loans to primary producers as well as developing the
programs necessary to address that need. Equally, the Department of Communities, Child
Safety and Disability Services can assist in defining community need and the programs or
activities necessary to address them. Departments can also assist in advocating for
Category C or D funding for such programs through their departmental chains of command.
The LDRC should work closely with State Government departments and agencies to
develop specific business cases that detail the programs and activities required to address
recovery needs on a cost benefit basis when advocating for Category C or D funding.
16.6 Other funding options for recovery
In addition to funding provided through the NDRRA program there are other opportunities to
fund appropriate recovery activities. These include, but are not limited to:
the Federal Government’s Australian Disaster Recovery Payments (AGDRP) see below
disbursements from official appeals
donations of material or in-kind support from individuals, community organisations or
businesses and/or
Public/private partnerships
These funding and support arrangements should, wherever possible be applied to specific
recovery programs and activities as detailed in the Operational Recovery and Sub-group
Action Plans.
The LDRC may need to consider a range of funding opportunities to ensure needed
recovery programs and activities can be funded to completion.
17. Other payments to disaster affected individuals
17.1 Australian Government disaster recovery payment
The Australian Government may provide disaster recovery payments to eligible adults and
eligible children affected by the disaster.
These payments are not automatic and are only activated when the impacts of a disaster on
a regional area are deemed by the Federal Attorney General as being so severe that further
Commonwealth assistance, in addition to that provided under the NDRRA, is warranted.
The Federal Government consider a person is adversely affected by a major disaster if as a
direct result of the disaster:
the person is seriously injured or
the person is an immediate family member of an Australia who is killed or
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the person’s principal place of residence has been destroyed or has sustained major
damage or
the person is the principal carer of a dependent child who has experienced any of the
above
Claims maybe lodged at Centrelink offices or at designated recovery centres established in
the disaster area.
17.2 Disaster Income Recovery Subsidy Payment (DIRS)
The Australian Government Disaster Income Recovery Subsidy may be offered to provide
ex-gratia financial assistance to employees, small business persons and farmers who have
experienced a loss of income as a direct result of a specific event.
The payment is subject to an income test to determine eligibility. Claims maybe lodged at
Centrelink Offices or at designated recovery centres established in the disaster area.
18. Coordination of donations and offers of assistance
Following disasters, it is frequently the case that offers of assistances such as financial,
goods and services, contra-arrangements or the donation of a person’s time, start to
overwhelm the affected area.
History has shown that most disaster affected areas are unable to cope with a large influx of
donations or offers of assistance; often resulting in problems such as:
stewardship
proper disbursement
disposal of donations that did not fit the needs of the affected community
storage issues
health issues relating to donated food that has spoiled
difficulty arranging effective means of donation transportation or delivery
an inability to match offers of services with current needs
In order to assist with the management of donations to affected communities following a
disaster event the Noosa LDRC will work with GIVIT a not for profit organization to manage
all donations of material items for the disaster. GIVIT will accept pledges of donations from
individuals and businesses via its website at GIVIT.org.au and then work with charity and
front line services to access donated goods and services.
Ultimately the best and most versatile way of helping disaster affected communities is
through a cash donation to a reputable disaster relief agency. In this way funds can be
allocated according to need, e.g. to purchase goods locally, the reconstruction of disaster
affected areas, provision of medicine or food etc.
Where possible a wide spread blanket approach to distribution of funds should be minimised
or discouraged to avoid raising community expectations that immediate assistance will be
forthcoming for all disaster events. It is now known such assistance can foster community
belief there is no longer a requirement for the community to take responsibility for their
safety, recovery or basic measures to protect their property. If possible eligibility for financial
assistance should be assessed on a case by case basis.
While all efforts should be made to show appreciation in the spirit in which offers of
assistance are made, the Local Disaster Recovery Committee should work with the LDMG
and disaster relief agencies in providing media releases on what is and is not needed at a
very early stages of response and/or recovery.
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19. Recovery centres and outreach services
The State Government Department of Communities, Child Safety and Disability Services is
responsible for the coordination and setting up of Recovery Centres often known as One
Stop Shops. Recovery Centres provide community members with access to a range of
support services offered by government and non-government organisations. These outlets
engage the maximum number of the affected population by providing a unified point of
contact and support to people requiring assistance.
One stop shops are a useful two way conduit of practical help, information and advice. They
can also be a good means of assessing ‘health checks’ on the affected population.
A list of sites in the Noosa local government area that may be used as Recovery Centres is
provided at Appendix 27.4.
The Department of Communities may also provide Outreach Services to address the needs
of those unable to attend recovery centres. Outreach programs are usually based on teams
of recovery workers provided by the Department of Communities, Child Safety and Disability
Services who visit people in their homes and businesses to render assistance and determine
needs. Outreach services are primarily designed to reach those isolated and will likely be a
key strategy for the Noosa area. The LDRC may need to assist the Department in providing
support services for outreach teams e.g. accommodation, local knowledge, etc.
20. Debrief, review and evaluation
A formal review and evaluation of the recovery effort should be undertaken at the conclusion
of recovery operations. This is usually conducted on Stand Down.
The primary method of undertaking review and evaluation is through the conduct of debriefs
after the event. A debrief in this context is the gathering of relevant stakeholders to review
and discuss and document the learning from the event and the changes that need to be
made to incorporate this learning.5
20.1 Periodic debriefs
Recovery can be a long process and debriefs may be undertaken at any time during the
recovery process for any particular activity. Undertaking periodic debriefs will assist in
capturing recommendations for improvement and may improve ongoing delivery of recovery
services. The LRC, LDRC and Sub-groups will determine the nature and extent of periodic
debriefs during the recovery process as part of ongoing continuous improvement. For
example, a debrief of those involved in facilitating a public forum or community meeting
should be conducted following the activity to determine how to improve for the future.
Periodic debriefs of individual recovery programs and activities are encouraged and should
be promoted by the LRC, LDRC and Sub-groups.
20.2 Final debrief
At the conclusion of recovery operations formal Review and Evaluation processes should be
undertaken of the entire recovery effort. The most effective way of undertaking this overall
review is through a series of debriefs of Local Advisory Groups, Sub-groups and the LDRC
upon Stand Down. Such debriefs should be conducted as close to the conclusion of
recovery operations as possible.
Usually debriefs are conducted from the bottom up meaning that subordinate entities debrief
first and their findings are included in the debrief of the next higher group. On this basis,
debriefs should, where possible, be conducted in the following priority order:
5
Evaluation can also be taken from assessing the status of action plans and needs analysis over time.
Community input into the debrief, review and evaluation is also important to inform the reporting and look at
improvements for future events.
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1. Local Advisory Groups
2. Functional Sub-groups
3. Local Disaster Recovery Committee
20.3 Debrief framework
Debriefs should be conducted using an agreed framework to ensure all aspects are
adequately covered. All participants must understand and adhere to this framework in order
to effectively contribute to the review and evaluation process.
The debrief framework for review and evaluation of Noosa recovery operations is based on
responding to three primary questions:
What did we do well?(Sustain)
What did we do well but needs improvement? (Improve)
What were the gaps and how do we fix them for next time?(Develop)
This broad framework can be expanded depending on the nature of the debrief. For
example, the debrief of the LDRC and sub-groups may examine each of these broad
questions against the major steps of the recovery process (see Table 2 at 13.1). A more
flexible debrief framework may be needed for Local Advisory Groups.
20.4 Debrief reports
Individual debriefs are to be documented using the framework applied to that debrief; and
provided to the next higher level group in a reasonable timeframe after the event. The final
review and evaluation report from the LDRC is to be provided to the LDMG, Disaster District
and the State Recovery Group no later than three (3) months after Stand Down from
Recovery Operations.
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PART C – Recovery Activities
21. Introduction
This section of the plan provides guidance to the Noosa LDRC and the sub-groups on ‘how
to’ conduct recovery operations. It draws from material provided in the Australian
Emergency Management Australia – Community Recovery Handbook 2 which offers current
best practice guidance on recovery.
This part is divided into four sections each aimed at one of the four pillars of recovery. This
part should be used by the sub-groups to assist them in undertaking their function.
It should be noted that recovery is essentially a creative endeavour aimed at addressing and
resolving problems and issues to achieve defined objectives. Each disaster is essentially
different and the recovery activities undertaken for each disaster event will often be unique
to that event. This part is provided to guide the LDRC and sub-groups by providing typical
methodologies and considerations for recovery. It is not exhaustive and the LDRC and sub-
groups must recognise that a range of methodologies and considerations may be applicable
to any particular event.
22. Recovery project cycle
The LDRC and sub-groups should strive to manage recovery operations using the recovery
project cycle. Figure 9 depicts this cycle.
Figure 9 – Recovery Project Cycle
(AEMI Community Recovery Handbook 2)
23. Human/social recovery
Human/social recovery activities often begin spontaneously within a community and it is the
role of the Human/Social Recovery Sub-group to provide structure and resources to support,
integrate and coordinate these spontaneous efforts.
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In Noosa human and social recovery activities are coordinated through the Community
Welfare Sub Committee which meets regularly and has a broad based membership
comprising representatives of Council, Federal and State Agencies and local community
organisations.
This section outlines the range of social recovery activities and services that address
aspects of safety, health and psychosocial wellbeing.
Appendix 27.12 provides a checklist or the Human/Social Recovery Sub-group for
human/social recovery activities.
23.1 Principles of effective social recovery
There are five empirically supported principles to guide intervention efforts in the early to
mid-term stages post-disaster. The five principles are concerned with:
promoting a sense of safety
calming (providing reassurance, strategies to reduce worry, fear, distress)
enhancing ‘self-efficacy’ and ‘community-efficacy’, giving people a sense of control over
positive outcomes
promoting connectedness, encouraging support networks, helping people to feel part of
their community
instilling a sense of hope and optimism for the future
Effective recovery is strongly influenced by very practical issues such as the availability food,
housing, jobs and financial security. As a general rule, the more the community can be
supported to rebuild the social and physical infrastructure, to return to their jobs and schools,
and to regain financial stability, the greater the benefit for their wellbeing and recovery
process.
The following seven indicators of social wellbeing may be used by the Community Welfare
Sub Committee
wealth
employment
amenity
health
social issues
social belonging
recreation and leisure
As a guide, the Community Welfare Sub Committee should strive to:
provide timely and accurate information
re-connect people with their families, friends and community networks
empower people to manage their own recovery and to access practical assistance
provide engagement and emotional support at individual, family and community levels
23.2 Categories of human/social recovery
Activities and services in the social environment are developed in the following categories:
safety and security
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shelter, including accommodation in the short, medium and long term
health, including medical, allied health and clinical services, public health, water,
sanitation, hazardous materials, food security, mental health support and health
promotion activities
psychosocial support, including individual and community activities and services
23.3 Safety and security
Loss of life, injury, loss of shelter and threats to safety as a result of a disaster all impact on
an individual’s and/or a community’s sense of safety and security. Social order and strong
governance provide the sense of safety that people require to reduce their anxiety about the
future. Disaster affected people will need timely information about safety, protection issues
and mitigation actions to address emerging safety and wellbeing issues.
23.4 Shelter
A paramount concern for displaced people is to have safe, alternative accommodation when
their homes have been damaged, destroyed or are inaccessible due to contamination or
ongoing hazard threats.
Ensuring displaced households and individuals have appropriate shelter (accommodation) is
a key to ensuring their safety and commencing their recovery. Accommodation
arrangements may range from short term to long term. Further information on building
matters is provided in the section on infrastructure recovery.
The Community Welfare Sub Committee should:
keep accurate and up-to-date records of where people relocate and their contact details
organise emergency accommodation in conjunction with local agencies
preferably arrange for transitional or longer-term accommodation on or near home sites
of those people whose own homes are not habitable
if people need transport, consider how this may occur
ensure privacy is respected and maintained at all times
establish a referral mechanism for psychosocial support.
23.5 Emergency and short term accommodation
Emergency and short term accommodation is considered to be that provided in evacuation
centres during the response phase of disaster management. However it may include the
use of hotels/motels, caravan parks, private houses including family and friends. It will
usually be only provided for a few days during the impact and immediate aftermath of an
event.
Arrangements to meet people’s emergency or short term accommodation needs are
managed by the LDMG’s Community Response Coordinator and the LDC.
When people need longer term accommodation following a disaster these needs will be
managed by the LDRC and the LRC.
When people need longer term accommodation these needs will be managed by the LDRC
and the LRC.
23.6 Interim/medium term accommodation
Responsibility for providing people with interim accommodation while their house is being
repaired or alternative long term accommodation sourced rests with the LRDC and the LRC.
Interim accommodation can be in a house, flat, or caravan and can continue for extended
periods of weeks, months or longer prior to permanent housing becoming available. In some
cases interim accommodation may transition into permanent housing.
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Interim accommodation can also be provided by friends, family, community, business or
government and non-government organisations.
The Community Welfare Sub Committee should work closely with Department of Housing
and Works and the community to develop and implement appropriate interim/medium term
accommodation to suit the needs of those displaced. Use of any of the following should be
considered:
use of rental properties on the market
use of existing caravan park accommodation
use of tourism accommodation providers, particularly those who cater for longer term
stays
transport of demountable buildings to designated locations e.g. show grounds, existing
caravan parks, or on or near displaced people’s homes/farms
community billeting using the resources offered by the community to provide longer term
accommodation e.g. granny flats, etc
Locations for temporary accommodation will vary considerably for each person/family.
Temporary accommodation solutions should be tailored to meet people’s needs as far as is
practicable. Considerations for interim/medium term accommodation include ensuring
equity, adequate safety and security as well as access to services such as:
water/waste management, power and communications
health
transport
schools and work and
social services including social networks and support organisations
23.7 Other considerations for recovery accommodation
Other considerations for the provision of shelter may include:
Living with family and friends. Displaced people may choose to stay with family and
friends. While this may seem a good solution to meeting accommodation needs the
Community Welfare Sub Committee must understand that the stressors on displaced
and host families co-existing in shared and/or cramped environments for extended
periods can have a detrimental effect in social recovery, particularly over the medium to
long term.
Spontaneous offers of accommodation. Offers for temporary accommodation such
as caravans, granny flats and spare rooms of homes often occur after a disaster. The
Community Welfare Sub Committee Sub-group must ensure that managing and
coordinating these offers occurs and that all accommodation meets consistent
standards of safety and suitability for the duration of the displaced person’s stay.
Proximity of temporary shelter. Most people whose homes have been destroyed or
significantly damaged prefer to return to their house blocks or farms to be as close as
possible to their home sites, livelihoods and communities. This should be considered
when developing temporary accommodation plans and arrangements.
23.8 Health
Health is a state of physical, mental and social wellbeing and not merely the absence of
disease and infirmity. Queensland Health is primarily responsible for the provision of health
care services to the community and should have effective representation on the Community
Welfare Sub Committee, in consultation with the health services subgroup and in
accordance with the health services sub plan. Public health services are provided by both
Queensland Health and Noosa Shire Council and play a key role in recovery to reduce
adverse public health affects after a disaster:
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managing communicable disease issues - surveillance and review of morbidity that may
be occurring in the community and subsequent implementation of interventions such as
vaccine programs, if, for example, there is an increase in diagnosis of influenza or
hepatitis A
health protection/environmental health and air quality, food and water inspections and
advice (for example, to boil water, water tank quality, disposal of spoilt food stores,
review of food preparation procedures in evacuation centres, etc.)
inspections and review of sewerage and other contamination issues that may impact on
the health of the community
health promotion activities, such as information and advice about heat stress, clean up,
health hazards (such as mould and asbestos), and other activities that aim to enhance
self-care and prevention of later hazards in recovery
23.9 Psychosocial support
Psychosocial impacts can be very broad and may be a result of how a disaster affects
peoples’ emotional, spiritual, financial, cultural, psychological and social needs as part of a
community.
Disaster affected people often receive the majority of their support from their families,
friends, colleagues and community organisations. In addition social recovery is enhanced
through the provision of adequate food/water/shelter and the return of services such as
transport, access, communication, power and health.
Psychosocial support builds on these measures by providing a variety of services that range
from supporting individuals and households to communities through community
development activities and projects.
Psychosocial support to individuals and households includes psychological first aid and
personal support services (discussed further below).
Community Development activities and projects are often low cost, simple activities that
provide the foundation for the establishment of a meaningful recovery program. They are
focused on providing assistance in re-establishing social connections and functionality
through group and community activities.
Examples include:
neighborhood barbeques
street meetings
school activities
community recovery planning
spiritual and sporting events
ceremonies
planning for remembrance activities
virtual forums
impromptu displays such as photographs or artwork depicting the event and /or the
community’s recovery
Figure 10 depicts the multiple layers of the community that should be considered when
delivering human/social recovery services.
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Figure 10 – The multi-layered aspects of the community
(AEMI Community Recovery – Handbook 2)
23.10 Psychological first aid
Psychological first aid is a key component of psychosocial support and provides a set of
skills to underpin the effective provision of psychosocial support services. It is an evidence-
informed approach based on commonsense principles of support to promote normal
recovery and includes helping people to feel safe, connected to others, calm and hopeful
and facilitating access to physical, emotional and social support; and enabling people to be
able to help themselves.
The goals of psychological first aid are to:
reduce distress
assist with current needs
promote adaptive functioning
get people through periods of high arousal and uncertainty
set people up to be able to naturally recover from an event
assist early screening for people needing further or specialised help
reduce subsequent post-traumatic stress disorder
Community leaders and other key members of the community can be trained in the
principles and delivery of psychological first aid to ensure that an appropriate response is
immediately available within the community and to allow community members to work
alongside emergency support workers to manage community needs. Under the current
Queensland State Disaster Management Plan, Lifeline Community Care Queensland is a
key agency involved in the community recovery process and has been delegated the lead
agency in the provision of psychological first aid following a disaster event.
For anyone seeking to work as a Community Recovery Officer, Lifeline Community Care
Queensland offers a nationally recognised qualification in psychological first aid.
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23.11 Personal support services
The term personal support services refers to the specific role within the social recovery
workforce, which provides a diverse range of practical assistance coupled with physiological
first aid for the immediate and early recovery needs of individual, families or groups of
disaster affected people.
Personal support services can be provided by a wide range of personnel from government
and non-government agencies and local communities. These personnel can be employees,
trained volunteers or trained local community members who have the capacity and
interpersonal skills to support people in distress. These personnel do not provide counselling
or psychological services but should be able to recognise people with these needs and refer
them to the appropriate service providers. These services are primarily provided and
coordinated by the Department of Communities, Child Safety and Disability services and are
evident in services such as evacuation and recovery centres (one-stop shops); and outreach
programs.
23.12 Practical assistance as a component of personal support services
Personal support personnel and key recovery agencies can provide, or ensure access to, a
wide range of practical assistance. Practical assistance is usually available through
evacuation and recovery centres and through outreach programs and can include:
information about what has happened, services available and plans that are in place
access to available communication such as telephone, satellite services, free internet
access
comfort and reception
referral to other agencies
reassurance and security
material aid (food, water, toiletries, hygiene kits, bedding, clothing)
time away for families (respite)
reassurance and security
child minding
child/aged care services
transport
advocacy, legal aid, insurance
pet care and foster care services
support with cleanup
meetings and forums
assistance with funeral arrangements
medication and medical care
locating relatives and loved ones
23.13 Designing individual and household psychosocial support
programs
Several issues need to be taken into account when designing and delivering personal
support services:
the majority of people affected by the disaster will not be used to using welfare or social
services and may find it difficult to approach, access or fully utilise emergency relief and
recovery services
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some people may need specialist support that is not readily available or may require a
complex mix of services to meet their needs
in identifying the need for individualised support services, recovery planning needs to
consider the impact the event has had on local service providers. There may be a need
to develop strategies to augment the availability of local community services to meet a
surge in demand
individualised support programs can graduate in intensity from self-accessed
information to coordinated service delivery and case management approaches
To be successful delivery of individual and household psychosocial support programs should
be:
simple and easy to understand
consistent
accessible
seamless
have a single point of contact
23.14 Community development activities and programs
Community development programs can be managed by the Noosa Council, local community
organisations or the Department of Communities, Child Safety and Disability Services. The
decision about the management of these programs is often related to local presence,
community trust and capacity to manage. Most community development programs in the
Noosa will be coordinated by the Noosa Council with assistance from community
organisations and the State.
To address the important recovery issues of family and community interaction, the
organisation of social activities has proven very effective. Neighbourhood barbeques and
local social events that make use of the arts, music, theatre or sporting activities all provide
opportunities for people to mix, tell their accounts of events and work cooperatively to plan
future events. Practical activities such as fence building or weed clearing can also include a
social component, and may be attractive to people who would not necessarily attend a
‘social’ event.
23.15 Managing volunteers and donated goods
The management of volunteers and donated goods is best handled under the Community
Welfare Sub Committee as their effect is often felt at the individual and household level.
Volunteers are often spontaneous and their service should be coordinated to ensure
effectiveness. Uncoordinated volunteerism usually results in a long term lack of volunteers
and ill feelings on behalf of those volunteering and those who could have benefited from a
coordinated approach.
Volunteers take many forms from motivated individuals to organised and structured groups.
They may be local or from outside of the local government area. Local level volunteerism is
not normally high after disaster events as local people are often helping family and friends.
Donated goods will also spontaneously emerge as altruistic people and informal community
groups seek to render assistance. If left uncoordinated and unsupported, they often attract
donations of material goods that are either not needed or which undermine the local
economy.
A guide to volunteer coordination is at Appendix 27.18.
23.16 Groups with special needs
It is widely recognised that men and women have different needs and human/social recovery
activities and programs may need to be categorised by gender. This is particularly important
for males who may find it difficult to acknowledge problems, to ask for assistance and to
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make use of naturally occurring support networks. Examples of types of social recovery
networks for men may include:
men’s sheds, which encourage men to work on projects that will have real and practical
benefits for themselves and the community and at the same time, provide opportunities
to talk over their issues with others seek advice and give help
tool libraries which are a practical and tangible way for men to receive assistance with
tools that may have been lost or damaged as a result of the disaster
locally organised events relevant to the men in an area affected by an emergency such
as sporting and leisure activities and other outdoor pursuits
For many women, sharing their experiences is one of the most important aspects of their
personal recovery. Programs that focus on ways in which women can interact, learn and
share experiences are vital and may include:
rural women’s networks
locally organised events relevant to the women in an area affected by the disaster such
as pampering weekends, gardening groups or women’s health information sessions
support groups that facilitate the sharing of stories and experiences
23.17 Children and young people
The additional needs of children and youth need to be considered by the Community
Welfare Sub Committee.
Considerations include:
recognition that children and youth are uniquely vulnerable following an emergency
event and require targeted and specialised support
children are not little adults and should not be managed in the same way as the adult
population
there is no one size fits all approach to recovery for children and youth and recovery
plans must consider the developmental stage of those affected
The importance of family and community support in helping children and young people
overcome the impact of their experiences cannot be overstated. Parent information
sessions that provide advice and information to parents on ways to support their children
may be beneficial.
Local schools are key community organisations that can provide support to the younger
members of the community. Engaging with schools and education facilities to gauge the
level of impact on the young people in a community and involving them in development of
plans and activities will assist in ensuring young people are cared for after a disaster.
The Community Welfare Sub Committee should consider providing information to school
and childcare centres perhaps through newsletters that explain the activities and support
that are available to young people and children. While schools are an important conduit to
reach young people and children, consideration must be given to supporting young people
after school or during school holidays or closures. Holiday programs and mobile
playgrounds may be useful to provide suitable activities to children and young people.
23.18 Culturally and linguistically diverse communities
Non-English speaking people may be especially vulnerable to prolonged impacts following a
disaster by virtue of their inability to communicate well with emergency and relief workers,
and their difficulty accessing information that helps them to make sense of the event and its
aftermath.
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Different cultures approach and react to disasters in different ways. This can potentially
cause tensions in the broader community if these reactions are not understood by others. It
may mean that minority groups in the community can feel left out, marginalised and
misunderstood if they do not understand or cannot relate to the recovery processes put in
place by the government and other organisations. They may also feel unable to express and
manage their grief or distress in their usual ways.
Refugees and asylum seekers can be particularly vulnerable, especially if they have suffered
extreme hardship and trauma in their countries of origin. The Community Welfare Sub
Committee should be aware of the different cultural groups in their communities and should
ensure that appropriate recovery services are made available to meet their needs. However,
it is also important to be cognisant that many of these communities demonstrate great
resilience because they often possess a range of experiences and skills in dealing with
emergencies.
23.19 Aged
Members of the aged community can be incredibly resilient but in other cases are
particularly vulnerable during a disaster. Their life experiences include events such as wars,
the Depression, bushfires, floods and droughts, which demanded great self-reliant
resources, gave them the strength to deal with unusual circumstances.
People who are older, however, may be isolated, frail, suffering from chronic illness or
dependent on others for transport, meals and self-care. Some older people may have lived
in the community all their lives and suddenly be put in a position of needing to relocate, in
addition to losing a lifetime of memorabilia and familiarity.
The Community Welfare Sub Committee needs to quickly establish who these people are
and where they are located in the community and link them into aged care services that can
help them re-establish a sense of safety and security as quickly as possible. In the same
way that children and youth may be brought together to help them talk about and process
their experiences of the disaster, it may be helpful to organise groups of aged people to get
together and share stories and information.
23.20 Support for the bereaved
People who are bereaved are an example of a vulnerable group that needs specialised
support and attention. The bereaved group will include surviving family members who
directly experienced the emergency event and family members who did not, so plans need
to be made to identify extended family members who may not be local to the community of
impact.
Counselling services should also be identified to assist with grief and bereaved communities.
The Community Welfare Sub Committee should maintain close liaison with the police and
the coroner’s office to ensure clear communication about support services is available to
bereaved groups.
Bereavement services are led by the Department of Communities, Child Safety and
Disability Services. Services may include:
one-on-one and family counselling
bereavement support groups
delivery of an annual commemorative event, including consultation and input from the
bereaved community
23.21 People temporally separated from, or have lost, their companion
animals
Companion animals can help people to maintain their social, emotional and physical
wellbeing. Companion animals are significant partners in many people’s lives.
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Increasingly, research shows that companion animals can also contribute to the recovery
and maintenance of both physical and mental health.
The Community Welfare Sub Committee should:
recognise that restoring animal–owner links in the aftermath of evacuation is an
important aspect of social recovery and return to normalcy
recognise that the grief from loss of companion animals can be as equally powerful for
some people as other losses, and this should be recognised in access to services and
remembrance activities
work with animal welfare agencies (for example, the RSPCA) and take the opportunity
to use volunteer support to provide services related to animal welfare
In addition, loss of stock and native animals can cause distress in both children and adults.
Arrangements for the care of stock and native animals should be provided for and
information on them given to the community.
23.22 Cultural and spiritual factors
The Community Welfare Sub Committee should be aware of and respect the cultural and
spiritual world views that shape many communities’ views of the disaster.
Cultural and spiritual symbols and rituals can provide an essential dimension to the
community recovery process. Rituals and symbols provide something that is familiar and
comforting in times of uncertainty and change. Commemorative events and memorials can
assist the community to interpret and share their emotions and collectively make sense of
the disaster for example, spontaneous floral tributes at or close to the sites of a disaster, and
probably beginning in the immediate aftermath.
The Community Welfare Sub Committee should note that that these symbols may be
identified pre- or post-disaster. If these are recognised, supported and coordinated as part
of the recovery process, which is owned by the community, they will provide the focus for
cultural and spiritual activities.
Remembrance activities must recognise that all people are affected and have equal rights to
participate in planning commemorative events or permanent memorials.
Memorialisation has traditionally honoured a society’s dead, so there is a tendency to focus
upon the bereaved. The Community Welfare Sub Committee should facilitate processes that
are sensitive to the wishes of the bereaved, but that are inclusive of all people affected by
the disaster.
These activities assist in the long-term integration of the emergency or disaster into the
history of the community. Often these activities can be conducted on anniversaries or other
significant community occasions.
23.23 Community Development Officers
In some circumstances it may be necessary to provide additional resources to support the
community development component of the recovery process. In particular, the employment
of one or more community development workers may be necessary to facilitate a range of
activities which will enhance the recovery of individuals and the broader community affected
by any given event.
Funding for Community Development Officers will vary however may be funded as part of a
Community Recovery Package under NDRRA Category C funding. The Human/Social
Recovery Sub-group should consider the need for one or more community development
officers and prepare funding submissions and business cases to the Local Disaster
Recovery Committee to enable advocacy for appropriate funding.
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Further guidance on defining the needs for such officers, their recruitment, selection and
roles and responsibilities is contained in Emergency Management Australia’s – Community
Development in Recovery from Disaster Guideline.
24. Infrastructure Recovery
24.1 Introduction
Depending on the nature of the event, infrastructure recovery may cover significantly more
scope than simply the restoration of essential services. The built environment is the physical
foundation of our society and damage to any part of it may have widespread impact on many
sectors of our community.
The complex character of the built environment is highly regulated and legislated, has a mix
of public and private service providers, and has evolved over a long period of time so that it
incorporates facilities built to different standards. Ownership of elements in the built
environment brings another layer of complexity. Parts of the environment may be owned by
multinational companies, individuals, government, community groups and all manner of
other entities.
Recovery of the built environment also provides opportunities to build to meet future
community needs.
It supports the recovery of the social, economic and natural environments of the community.
A coordinated response across levels of government, the private sector and the community
is necessary to resolve complex infrastructure recovery issues.
It is therefore important that the Infrastructure Recovery Sub-group’s membership reflect the
scope of infrastructure recovery required as defined in the Community Recovery Needs
Analysis.
This section details the matters the Infrastructure Recovery Sub-group should consider
when addressing Infrastructure recovery.
24.2 Categories of infrastructure recovery
The following categories of recovery will need to be considered by the Infrastructure
Recovery Sub-group:
essential services
transport networks
rural infrastructure
residential infrastructure
commercial and industrial infrastructure
public buildings and assets
24.3 Essential services
24.3.1 Communications systems
Communication systems are essential to effective recovery. Communications underpin
social and business networks and are essential in ensuring effective public information.
The Infrastructure Sub-group should involve the Communication sector to assist in
prioritising communication network repair and reconstruction.
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24.3.2 Energy supplies
This includes liquid fuel, electricity and gas. Consequences of loss of energy supplies may
be widespread. The Sub-group should consider the following possible impacts of power
supply disruption:
perishable food spoilage
the impacts on supply of essential services, such as water, sewerage and gas
failure of communication and information technology-based systems
disruption to fuel distribution
potentially high demand for portable generators
security and safety concerns due to lack of lighting and loss of traffic lights and rail
signals, compromising transportation
impacts on commercial and industrial activities
impact on primary production
impact on other key essential services such as food storage and food distribution
implications for the location of a recovery centre
difficulties in maintaining accommodation for displaced people and recovery workers
problems for medically dependent residents who require electricity
The Infrastructure Sub-group should involve the energy sector to assist in prioritising energy
repair and reconnection.
24.3.3 Water supply, treatment and sewage
The consequences of damage to the water and sewage infrastructure may be widespread.
The sub-group should consider the following possible impacts:
impact on the quantity and quality of water for community and commercial use
impacts community health caused by failure of sanitation systems
firefighting may be compromised
overflows caused by blockages and local flooding may lead to flooding of homes and
businesses
24.3.4 Food production, food merchandise and distribution
Following an event some households will have sufficient food and groceries to sustain them
for a period of time, but many will not. The food and groceries industry suggests that on
average 95% of households have between two and four days of pantry supplies and that
40% of meals are purchased and consumed outside the home. People in rural areas
however may have significant pantry supplies due to their experiences and location.
The impact on the food supply chain depends upon the extent of the event. The food supply
chain is very flexible and can respond very quickly where the event is regionally contained.
However, in the affected area supplies may be limited due to the direct impact of the event
and panic buying by the community. The food supply chain is also the primary channel to
market for a range of essential household health, sanitary, cleaning and disinfecting
supplies.
Restoration of the food supply chain is a priority.
24.3.5 Health infrastructure
This includes aged care, hospitals, and health care facilities (general practitioners,
chemists). Health and community services are primarily delivered from premises within the
built environment. Damage and disruption to these premises reduces the capacity of the
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service system to meet the existing and emerging health and psychosocial needs of the
community.
At the same time, a disaster event almost always carries with it the likelihood that people will
be killed or injured and/or experience emotional trauma. The demand for medical and
personal support is likely to increase, which will place extra burden on a community with an
already diminished capacity.
Impacts within health and community services include:
hospitals, clinics and aged care facilities and/or their equipment may become damaged
and inoperable—disruption to water, gas and power will also severely restrict the
services these facilities can provide even if they continue to function
damage to supported accommodation facilities for housing vulnerable people (frail, aged
and people with disabilities), which may put them at higher risk of harm
public health concerns that arise with the displacement of large numbers of people
including into temporary accommodation)—the interruption and disruption of utilities and
sanitation creates a high risk of infectious disease outbreak
24.3.6 Sanitation (liquid and solid waste disposal)
The level of sanitation may well be severely compromised and result in a risk of infectious
disease outbreak or spread. In addition to contaminated water, risks can result from:
rotting food
other contaminated materials, such as soft furnishings, papers and even building
materials
dead animals, including pets and farm animals
24.3.7 Security
Security infrastructure such as fire alarms and security lighting and cameras may all be
impacted. Security issues following an emergency may also relate to a crime scene or
coronial inquiries. The forensic requirements of these issues can hamper recovery of the
built environment. Looting may also be an issue requiring additional security resources.
Damage to buildings presents genuine concerns for the security of premises and
possessions.
24.3.8 Transport Networks
Transport networks, including road, rail, aviation and maritime networks, and the
infrastructure that supports them such as bridges, railway lines, ferries and airports can be
affected during an event.
Restoration of these networks is a priority in support of recovery and a special sub-group
may be formed to focus on the restoration of the region’s transport networks.
24.4 Rural infrastructure
Damage to rural areas can impact on livelihoods and on living conditions. For rural people,
the loss of their homes may result in dislocation from their livelihoods. It may be very difficult
for them to remain living onsite to maintain their enterprises.
The following aspects of rural infrastructure may be damaged:
fences
pasture
machinery
sheds
irrigation infrastructure
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Other specific rural issues include:
length of time needed to restore livelihoods in rural areas may be extended
there may be a difference between commercial and hobby farmers
impact on livestock by loss of fodder and pasture and the consideration to sell, agist or
cull livestock may be foremost in farmers’ minds
biosecurity can be compromised by damage to fences or movement of soil or water
24.5 Residential infrastructure
Residential losses can occur in the following categories:
houses, home units, apartments, flats, sheds, mining camps
nursing homes, hostels, aged care facilities
boarding houses, hotels, motels, caravan parks
residencies in commercial buildings and businesses
24.6 Commercial and industrial infrastructure
Much of the economic activity in a community is driven by the commercial and social
networks that depend on the built environment. Demand on most commercial facilities
increases during the recovery period but the capacity to supply need is often hampered by
the damage to the built environment.
Damage or disruption to commercial facilities and infrastructure may inhibit the community’s
access to the services and support provided by:
transport
banking and finance; for example, cash accessed by automatic teller machines
employment
hospitals and emergency facilities
tourism
supply chains, such as for food (supermarkets, warehousing and transportation offices),
fuel, hardware and building supplies, chemists and suppliers of other controlled
substances
Adverse effects of damage to commercial facilities can include:
contaminated debris; for example, hazardous waste (asbestos)
health hazards; for example, biochemical, animals, food
24.7 Public buildings and asset infrastructure
For a community to function or to be viable, it requires operational public buildings and
assets, including:
community/neighbourhood centres
schools
kindergartens
places of spiritual worship
sporting clubs
cultural centres
entertainment venues
restaurants and cafes
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heritage listed properties and cultural icons
parks and gardens, public spaces and amenities
Each facility has the potential to help considerably during the recovery, but may be unable to
perform its community functions if damaged. The community is reliant on the restoration or
replacement of the above infrastructure to re-establish and function.
24.8 Infrastructure recovery planning
In planning infrastructure recovery, the Sub-group must:
undertake detailed damage and needs assessment
develop contingency plans to allow work to be done, despite the immediate difficulties
(including reduced transportation and communication services)
recognise the strong links between infrastructure recovery, economic recovery and
people’s response to the emergency or disaster
prioritise infrastructure restoration and its eventual recovery according to the importance
of the service that the infrastructure supports
recognise that people may be traumatised if they feel that their buildings have not
protected them or if they have suffered loss as a result of the event
recognise that these feelings of loss and deprivation will be heightened if the normal
community structures for support are not in place, and if the damage to infrastructure
places further threats on their continued wellbeing
understand that reconstruction of the infrastructure by external parties can alienate the
community unless the community is involved in the formulation of recovery strategies.
24.9 Key steps in infrastructure recovery
The key steps in infrastructure recovery planning include:
understanding what needs to be done to recover
identify external constraints and internal organisational restraints
prioritise tasks
put in place short term /interim fixes
identify the resource and material requirements
strategic planning (including long term recovery outcomes)
These are amplified in the table at Appendix 27.14.
24.10 Infrastructure needs assessment
Infrastructure assessments may be categorised into three separate activities:
Initial assessments which are usually undertaken in the first few hours after impact
during the response and immediate/short term (relief) stage of disaster management.
These assessments usually only provide an indication of the scale of the problem and
allow for response and relief operations.
Rapid impact assessments, which are usually conducted within the first 24 to 48 hours
after impact and involves the sending out of damage assessment teams to make first
hand assessments. Rapid impact assessment can be undertaken by Queensland Fire
and Emergency Services (Fire) is an example of this form of assessment.
Detailed assessments, which are normally conducted after the disaster response
phase and which inform the development of the Recovery Operational Plan and the
Infrastructure Recovery Action Plan. These assessments will normally be undertaken by
individual agencies and coordinated by a suitably qualified person appointed by the
Executive Director Infrastructure Services
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When gathering information for infrastructure recovery assessments, the sub-group should
consider:
power
water
gas
roads and bridges
rail
communication networks (exchanges, etc)
damage to residential and commercial buildings
damage to public buildings including schools and hospitals
damage to recreation and cultural facilities
dam walls
hazard footprints, locations
displaced people
food supplies and food and merchandise supply chains
alternative access points
fences
Complications in damage and impact assessment often occur because:
owners of properties are not present at the time of inspection
professional advice may be needed and may not be readily available
organisations and individuals have differing priorities and agendas which impacts on the
timeliness and relevance of the impact/damage assessment
data on damage may not be complete due to inaccessibility
insufficient resources available to analyse impact data and needs
data reporting in a variety of incompatible formats
24.11 Reconstruction
Reconstruction is generally more complex that regular building and development activity.
Some of the key issues to be considered by the sub-group include:
24.12 Planning for reconstruction
Community consultation. Works should be prioritised and staged (i.e. temporary fixes
with more detailed solutions developed over longer time frames) in consultation with the
affected community.
Assessment. There are likely to be differing assessments e.g. insurance versus those
affected. Limited assessments done early may miss things or under report or over report
the scale and nature of damage. Damage may be missed by inexperienced or
overwhelmed assessors.
Environment. There is a need to reduce exposure to future risk or creation of new risk
from reconstruction effort
Regulation and frameworks. Temporary relaxation of planning regimes may allow
buildings and structures to be built that reinstate pre-disaster vulnerabilities or threats.
In addition, house repairs might not have to meet new building codes, whereas
rebuilding is usually to the new standard. Underinsurance and low damage write-offs
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may place a significant burden on building owners and the Recovery Sub-group may
engage with insurers and building owners to assist in negotiations. Betterment
programs and initiatives should also be explored to “build back better” damaged
infrastructure to a higher standard than the pre-disaster design standard.
24.13 Approvals and planning
Appropriate standards for reconstruction may not always be clear. Buildings must conform to
the current building regulations at the time of their construction, however over time, these
regulations may change. This can cause difficulties for owners, insurers and financiers. In
addition, supervising the reconstruction may bring other problems.
Many people may not be aware of the need to apply for building approval for major repairs
and may try to start major repairs without approval and in the confusion of clean up and
general construction activity, their work may go unnoticed.
Although temporary repairs to give some amenity are accepted in the early stages of
recovery, some temporary repairs may become incorporated into the final structure without
approval.
Additional staff to approve and inspect building and construction will likely be required to
augment existing staff overloaded with planning and approvals.
Planning processes may need to be streamlined to ensure quicker turnaround to those
affected by disaster.
Volunteers may be required to show that they are appropriately qualified, particularly
interstate trades people who may not be familiar with Queensland requirements for building
and construction.
24.14 Implementing reconstruction
Wherever possible, the Infrastructure Sub-group should encourage the use of local
contractors for reconstruction and building tasks. This enables local work opportunities and
supports the local economy. Local contractors also have local knowledge.
Delays in reconstruction are inevitable either because of continuing hazards, the scale of the
event and / or the availability of resources. Lack of funding can also cause delays. The sub-
group should seek to minimise delays wherever possible to alleviate stress in the
community. Where delay is unavoidable, the sub-group should engage with the community
to provide public information and to confirm temporary arrangements.
Many organisations involved in recovery may be contracting work or issuing tenders.
Normal tendering, awarding work and contracting processes should be followed. The sub-
group should encourage all organisations to ensure they adopt sensible and accountable
procedures for the contracting of services.
The changing nature of recovery means that:
staged reinstatement may be needed to deliver some quick but temporary outcomes
that address the immediate needs (with later work required to address longer-term
needs)
plans may need to change to meet the changing needs
at all stages, time should be set aside to reflect on the decisions that have been made
and to make sure that they provide the best solutions—in some cases, rushed decisions
are not necessarily the best ones
communication (both by listening and talking) is important with all stakeholders—this
includes the Sub-group and Local Advisory Groups.
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24.15 Other considerations
24.15.1 Make safe
It is important that safety and security is maintained throughout the recovery process. There
is a risk that people will not maintain normal safety measures and procedures in their haste
to effect repairs and restore some sense of normality to their lives e.g. ensuring that only
appropriately qualified people perform work. The term ‘make safe’ means many things and
can include:
classifying structural soundness
establishing safe areas by removing hazards
maintaining health, public health and safety standards
managing ingress and egress routes
receiving suitable sign off
requesting domestic and industrial consumers of gas, water and electricity to shut off
equipment to preserve limited supply
The sub-group should plan for and implement programs that promote and enhance safety in
building and construction. Agencies such as the Building Services Authority and trade
unions can assist in these matters.
24.15.2 Clean up
A significant volume of damaged material must be removed prior to the construction of new
facilities. In many cases this operation must be performed to restore amenity to the
community.
Clean-up operations include:
o removal of debris and other matter - green waste, building waste
o removal of rotting food from shelves and refrigerators in commercial establishments and
houses (both attended and unattended)
o removal and disposal of hazardous substances (for example, asbestos containing
material, dust from fluorescent tubes)6
o removal of enviro-hazards (for example, oil or chemical spills, copper and arsenic,
treated timber, lead, silt, flood debris which may become a future fire risk)
o disposal of carcasses from pets or agricultural animals—this may require special
disposal and environmental health officers should be consulted for appropriate areas
and requirements
o processing waste—grinding, compacting, recycling
o disposal of medical waste, including pharmaceutical waste—this may require special
supervision and disposal at secure sites (consult environmental health officers)
o managing and removing debris that presents a safety hazard to the community and may
require special steps to remove (for example, glass in school playgrounds)
Handling, safety and regulation
o a need to take care with removal, handling and disposal of hazardous substances (for
example, lead or asbestos-containing products)
o calculating the logistics of moving the waste and debris—transport and
o heavy equipment within built-up areas and high traffic levels at the disposal site may
impact communities
6
Where the amount of asbestos exceeds council control and handling, a request for assistance is to
be made to the DDMG
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o consulting the Environment Protection Authority (obtain sign-off) for some disposal
processes
o assigning landfill and burial sites—these may have to be new sites and would be subject
to permissions and approvals
o obtaining specialist services/contractors/expertise
o obtaining suitable sign-off at the commencement of the work or on completion of debris
removal—the requirements for these may vary for different services
o disinfecting water-damaged facilities and other areas where there is concern about
continuing health and amenity of the facility
o maintaining normal safety measures through all operations
Site-specific issues
o work performed on and around heritage-listed facilities may require special permissions
o working in an environment affected by coronial matters—where there are deaths
associated with the event, or crime has been associated with the event, the access to
the site may require clearance from police or coronial staff.
25. Economic Recovery
25.1 Introduction
Disasters can cause devastating and widespread economic impact. Houses, business and
community infrastructure may be damaged or destroyed and people’s livelihoods may be
temporarily and sometimes permanently disrupted. While physical damage is the most
visible economic impact, less obvious impacts such as loss of income from disruption of
trade can often be more significant and extend well after infrastructure has been repaired or
replaced.
25.2 Categories of economic impacts after disaster
Table 6 outlines the categories of economic impact at the household and business/industry
levels:
Household Business/industry
Loss of employment and/or income (loss of Loss of supply chain networks
livelihood)
Loss or damage to business assets
Loss of household assets
Loss of employees due to business closure
Instability or loss of social networks and migration of skilled staff
Increased costs due to short supplies of Infrastructure damaged or devastated
goods and services
Damage to or loss of natural resources
Lack of childcare and school facilities
Table 6 – Economic and financial impacts of disasters
at the household and business / industry level
(Derived from AEMI Community Recovery, Handbook 2)
Communities are economically disadvantaged when individuals are unable to work, either
because their place of employment has been impacted by the emergency event or by other
disruptions, such as school and childcare closures, which necessitate children being cared
for at home. Being able to work in paid employment or to run a business profitably
empowers affected individuals and motivates communities to regain charge of their lives by
meeting their own needs as they best see fit. The consequences of extended periods of
downtime in trading or production can result in:
bankruptcy
forced sale of businesses
forced sale of stock
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business closure
loss of experienced workers
loss of supply chain linkages
depleted customer base due to temporary or permanent population shrinkage or as a
result of an influx of material donations to the area
25.3 Economic impact assessment and needs analysis
Assessing the impacts of emergencies and disasters is integral to the recovery process.
Impact assessments provide communities and policy makers with invaluable information
about how a disaster manifested and what needs to be done to return the community to
normal as well as helping to identify strategies to build back stronger. These assessments
can inform future disaster risk management, as well as broader sustainability goals.
25.4 Measuring economic impact
Measuring the economic impacts of a disaster can be a complex undertaking and needs to
be strategic in nature. It therefore requires thorough planning. The principle reference for
disaster loss assessment in Australia is the Emergency Management Australia, Disaster
Loss Assessment Guidelines, 2002. It provides guidance on assessing disaster loss
primarily for the purpose of planning and justifying future risk mitigation and community
resilience measures.
Due to the complexity of undertaking an economic impact assessment some specialist
expertise will be required. At a minimum some members of the Economic Sub-group should
have formal experience or training in disaster loss assessment or economics.
Economic impact assessment attempts to quantify, in a common unit (dollars), all impacts
(both costs and benefits) possible. Importantly, the economic in economic impact
assessment applies not only to goods and services that are traditionally traded in the market
place, but also to the value attributed to social and environmental assets. Economic impact
assessments are conducted to ensure long term economic outcomes can be visualised and
planned for.
25.5 Economic impact versus financial impact
Economic impact assessment is distinct from financial impact assessment. Economic impact
assessment includes all impacts on a community while financial impact assessment often
concerns a single economic unit such as an industry, business or household. In the early
stages of recovery, the Economic Sub-group may well focus on the conduct of a series of
financial impact assessments (across sectors) which will in turn collectively help inform the
overall economic impact assessment.
25.6 Tangible versus Intangible Impacts
As well as direct and indirect impacts, economic impacts are typically divided into tangible
and intangible impacts:
tangible impacts—the loss of things that have a monetary (replacement) value (for
example, buildings, livestock, infrastructure)
intangible impacts—the loss of things that cannot be bought and sold (for example,
lives and injuries, environment, memorabilia, heritage)
Tangible impacts are typically easier than intangible impacts to assign a dollar value to
because they are traded in the market place. Intangible impacts are much harder to assess.
Intangible impacts are often described as a ‘catch all’ that includes all those costs that are
very difficult to estimate, for which there is no agreed method of estimation and for which
there is no market to provide a benchmark. However they should be considered and
included appropriately in impact assessments.
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25.7 Direct and indirect impacts on sectors
Impact assessment may be undertaken by identifying impacts, both direct and indirect on
key community sectors. Table 7 outlines some considerations for the assessment of direct
and indirect impacts on the key sectors of the community.
Sector / area of
Direct Indirect
impact
Residents and structural (roofs, walls etc) additional costs - alternative
households contents (furniture, floor accommodation and transport,
coverings etc) heating, drying-out costs,
external (swimming pools, medical costs etc
gardens etc)
death and injury
Public infrastructure, Damage to or loss of transport (traffic delays, extra
community facilities operating costs etc)
roads
and natural loss of computer-controlled
environment bridges
systems
dams
loss of other lifelines
sports grounds and facilities
(electricity etc)
schools
halls
parks
waterways
bushland
Business Structural damage to Impact on production
enterprises and
buildings manufacturing,
supply networks
shops agriculture
factories services etc
plants Impact on
sheds
barns income
warehouses trade
hotels etc sales
value added (tourism
Asset damage or loss: operators, retail traders
farm equipment etc)
food Increased costs
records
product stock (finished freight
manufactured products, inputs
works in progress and agistment etc.
input materials) Loss of supply chain networks
crops
pastures Increased work (construction
livestock industry)
motor vehicles Opportunity to renew struggling
fences or irrigation business
infrastructure
contents damage to
fixtures and fittings
(carpets etc)
furniture
office equipment
virtual business
interruption.
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Government Loss of income – for example if costs of implementation of
population base shrinks or royal commission
council waives tip fees as a recommendations
gesture of goodwill increased demand on
government services
(education, health etc)
loss of business continuity
(state government may
provide case management
involving significant resources
to be redeployed immediately
for long periods)
loss of tax revenue
cost of engaging extra
resources and/or backfilling
positions
Table 7 – Direct and indirect economic impacts of disaster on key community sectors
(Derived from AEMI, Community Recovery Handbook 2)
25.8 Guidelines for economic recovery
The following guidelines for economic recovery and the supporting strategies provide a
framework for the Economic Sub-group in developing economic recovery programs after a
disaster:
economic recovery strategies are an integral part of the overall recovery management
process
coordination of all recovery programs is needed to support and enhance the economic
structure
it is important to recognise that affected people need to re-establish their means of
making a living to enable them to manage their own recovery
response and recovery actions actively support the recovery of business and industry
the best outcomes are achieved when business and industry is returned to activity as
early as possible
adaptive change is adopted in light of previous knowledge of the sustainability of
business and communities, and strategies
business and/or industry representatives must participate in economic recovery decision
making
it is important to retain skilled workers in the affected area through paid employment
it is important that measures are taken to mitigate the impacts of future disaster on
business continuity
25.9 Economic recovery - management strategies
Examples of specific management initiatives include:
formulate short-term business survival strategies
identify all aspects of the economic impact of a disaster and continue to assess, analyse
and monitor to inform the level of support required by community
plan (from the beginning) for the transition back to mainstream service provision
establish and maintain communication channels between community, business, industry
and government representatives in the community
proactively seek and involve investment and technical assistance parties from within
and outside affected communities
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facilitate local advisory groups as required that are representative of business, industry
and employee groups
ensure communication strategies incorporate information around economic recovery
support to the broader community
support and facilitate the development and maintenance of partnership arrangements to
enhance economic activities
establish positive images to attract visitors when appropriate
report information on the effectiveness of the economic recovery program to all
stakeholders
develop risk management assessments for the economic recovery program
avoid duplication of services and identify gaps
maintain confidentiality and privacy principles
ensure monitoring, evaluation and reporting processes are embedded in all economic
recovery activities
25.10 Economic recovery - service delivery strategies
Examples of specific service delivery include:
develop a comprehensive list, including contact details, for all available and accessible
financial and economic services for disaster-affected people (for example, government
agencies, banks, insurance companies)
ensure the broader recovery workers know the range of services available and
appropriate referral processes
facilitate the provision of financial assistance measures in a timely, fair, equitable and
flexible manner
provide material aid where it is appropriate (for example, to isolated properties)
facilitate the provision of financial counselling and management services
ensure economic and financial services and/or information are coordinated and
provided by a variety of means and use the existing communication networks within
communities
provide community awareness on how to source information regarding the validity of
goods and services being offered by businesses seeking opportunities within the
disaster-affected localities
25.11 Economic recovery - enabling initiatives
Examples of other initiatives include:
encourage response agencies to implement procedures to support economic recovery
(for example, local employment program for clean-up)
support and promote opportunities for sustainable economic recovery
actively work and/or negotiate with financial institutions on behalf of affected people and
businesses
advocate for the return of evacuees into the affected area as soon as possible when the
environment is safe
procure goods and services via local businesses and tradespeople wherever practical
(for example, use local electricians for power safety checks and repairs, encourage
agencies to employ local residents and to purchase resources and services locally)
value and build on the local capacities of services that support economic activities (for
example, childcare services and non-profit groups)
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build on local, regional, state or territory industry and business organisations and their
networks (for example, home business network, tourism boards, chambers of
commerce)
encourage the community to buy locally through known and trusted businesses
facilitate the creation of work placement projects (for example, clean-up activities)
to provide short-term paid employment to retain skilled workers in their current
location while they await their former place of employment to recover and re-open
facilitate the provision of government grants, appeal distribution and charitable
payments as financial, rather than material, assistance in support of economic and local
business recovery
25.12 Financial services
The purpose of financial assistance measures is to support those in need, while encouraging
appropriate personal responsibility. Resilience and preparedness (such as appropriate and
adequate levels of insurance) are to be encouraged.
The recovery of communities from the effects of emergencies and disasters is assisted by a
range of financial measures, which provide a source of funds to businesses, local and
state/territory governments, householders and the community to assist with and promote
recovery. These sources include insurance and may also include government provided
natural disaster relief and public appeals (depending on the severity of the event).
Assistance may also be provided by banks (for example, the suspension of mortgage or loan
repayments and provision of financial counselling and advice), and the Australian Taxation
Office has developed a Disaster Response Framework.
Communities should be encouraged to explore their own resources, and to plan and be
prepared for an emergency event. Changing community expectations and the political
landscape have historically impacted on the provision of financial services.
The need for financial assistance measures such as insurance, Federal and State
government assistance and appeals are critical after disaster because of the effect on
people’s employment and income stream—more commonly referred to in the international
humanitarian assistance literature as livelihoods.
The various State and Federal Government financial support packages are detailed in Part B
under Funding Disaster Recovery.
25.13 Financial assistance—public appeal funds
The Australian community has, historically, come to the aid of people affected by disasters
through monetary donations to public appeal funds. Although this generosity cannot be
assured in the future, and is not part of the Noosa contingency arrangements, public appeals
need to be considered.
A State public appeal is often established after large disasters affecting a significant portion
of the State. However, many people wish to donate to help a particular area impacted by
disaster. Local appeals run by community organisations are likely to emerge in the
aftermath of a disaster. Focusing on a single local appeal to help support recovery disaster
impact is preferred although it must be acknowledged that smaller collections of cash will
occur within community groups. These should be directed to the relevant local appeal or to
the State appeal as appropriate.
The LDRC should promote a single local government appeal where possible. Appeals such
as these should be managed by a suitable and reputable community group. If communities
wish to provide assistance they should be strongly encouraged to express their sympathy
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and empathy for disaster victims through monetary donations. It is more empowering for
people to receive cash grants so that they can choose what they most need to support their
own recovery, which can also assist in stimulating the local economy. The key message is
that cash is always preferred because it can be targeted to meet immediate needs.
25.14 Financial assistance—insurance
Insurance is the primary means of gaining financial compensation for the cost of restoration.
The major types of insurance cover are for home and contents, income protection, and
property and business interruption.
Home and contents policies usually provide replacement and reinstatement insurance,
which covers the cost of repair and replacement of damaged property and contents. The
less common indemnity policies take account of the age and condition of the items insured.
If buildings and/or contents are underinsured, the settlement amount from the insurer is less
than the cost of replacement. There is also a need to be aware of the policy exclusions (that
is, the risks not covered).
Commercial insurance is designed to cover many of the risks, including damage or loss
caused by disasters, which are faced by business, including coverage for buildings, vehicles,
equipment, stock, plant, and fixtures and fittings, as well as business interruption. Adequacy
of insurance cover is an important community message that should be promoted routinely.
25.15 Insurance Council of Australia
The Insurance Council of Australia assists affected people to navigate and negotiate the
insurance process. A central goal is to build and maintain a high-level coordination capability
to be employed following a disaster. The strategic intent of this objective is, first, to increase
the effectiveness of individual efforts for insuring disaster victims and, second, to improve
and simplify liaison with state and federal government emergency response systems. The
Insurance Council of Australia has produced the Industry Catastrophe Coordination Plan.
They are able to provide representatives at State and at regional levels when impacts are
significant. The Economic Sub-group should consider involving Insurance Council of
Australia participation in insurance and insurance claim matters arising from the disaster.
25.16 Australian Taxation Office
The Australian Taxation Office supports taxpayers, businesses and tax agents through its
disaster response framework. Mechanisms include appropriate and timely arrangements to
relax tax obligations and provide tailored assistance to people when they are ready to attend
to their tax matters. During previous disasters in Australia some key responses included:
allowing lodgment deferrals of activity statements or income tax returns without penalty
allowing additional time to pay tax debts without incurring general interest charges
initially stopping correspondence to affected areas
fast-tracking refunds
25.17 Public-private partnerships
Public-private partnerships can capture the goodwill that exists in the private sector and its
willingness to be part of the recovery process. They do not include the normal procurement
that enables services to be provided and they do not necessarily involve exchange of
money. An example is the provision of goods or services following a disaster by a private
enterprise to a relief agency that is covered by a memorandum of understanding.
These partnerships can increase capability to respond in a timely manner, and can provide a
mechanism to assist the smooth provision of services.
Partnerships in the recovery environment can provide:
corporate in-kind support
information to the community
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information to the Sub-group or the LDRC on damage/impact assessments, community
needs and the effectiveness of recovery actions
human resources
construction contracts (for example, supply of heavy lift or specialist equipment, loan of
equipment and staff to assist in the immediate response, deployment of engineers to
undertake damage assessments, deployment of reconstruction and building trades
professionals)
supply (for example, the provision of catering)
maintenance
accommodation
grants/appeals management
supply of credit (to other businesses to allow them to resume operating, or to
customers)
health and community service professionals
fuel supply and distribution
In preparing and planning, it is useful to consider the public-private partnerships that can be
established prior to an event to assist with contingency planning. Traditionally, corporate
support has been a spontaneous response to an emergency event, and needs to be
negotiated after an event, taking into account the needs of a community.
For partnerships that can be established as part of preparedness and planning,
consideration should be given to:
identifying goods and services that can be procured through this means
establishing and identifying accredited/licensed/certified suppliers, and seeking
indicative costs to avoid cost inflation/profiteering post impact (for example, to provide
food and supplies to individuals at recovery centres)
including local suppliers in recovery efforts where possible—issues to consider include
the potentially impeded capacity of local suppliers to deliver due to the disaster
establishing links between non-regional and local suppliers to retain local employment
establishing links between non-regional and local suppliers that are able to continue or
re-commence trading, to keep money in the community
documenting partnerships between suppliers—use of non-regional suppliers needs to
be handled with some sensitivity for local suppliers
25.18 Steps to Economic Recovery
The steps to the post-disaster economic recovery planning process are:
Step 1: Conduct post-disaster economic and financial impact studies
The Economic Recovery Sub-group should seek to perform economic and financial impact
studies where necessary and appropriate. Financial impact studies will focus on specific
economic units (such as a business or a sector of the community). An economic impact
study should build upon these financial impact studies to determine the overall impact on the
economy. Both financial and economic impact studies will build upon the initial damage
assessments undertaken during response operations. These impact studies should be
conducted as quickly as possible following the disaster. They provide intelligence for
decision-makers and support any requests for the State or the Australian Governments to
provide appropriate funds for rebuilding and recovery. These impact studies assess both
physical damage (properties, inventory, etc.) and economic damage to industry and the local
economy.
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It is likely that there will be many challenges in acquiring both pre-disaster and post-disaster
data, particularly in an initially chaotic environment immediately after the disaster impact.
This emphasizes the need to identify the stakeholders and include them either on the Sub-
group or as members of Local Advisory Groups.
To the extent possible, the studies should measure the following economic impacts (where
data is available):
job loss
loss of wages
business closures and interruption (loss of productivity)
damage to infrastructure
damage to property (commercial, industrial, residential)
damage to natural resources (which have an impact on local industries)
Step 2: Initiate a post-disaster economic recovery assessment and planning process
The Council should take the lead in initiating the economic recovery planning process with
support and engagement from State Government agencies, other business, civic and
community organisations (see Terms of Reference for the Economic Sub-group). This
process should begin as soon as possible after the disaster event to take advantage of the
sense of urgency and unity following a disaster and to ensure strategies and resources of
economic recovery can be planned for and acquired.
Step 2a: Identify the roles and responsibilities of all economic recovery stakeholders
Confirm roles and responsibilities among partner organisations for all phases of recovery.
Step 2b: Establish Local Advisory Groups to gather relevant data and information
Local Economic Advisory Groups should be established to cover major topics (e.g. business
retention, small business assistance, tourism promotion etc.). Each working group should
have a chairperson and be responsible for compiling relevant data. The group can also
begin identifying major issues and suggesting strategies and resources to address those
issues.
Step 2c: Produce a complete economic analysis (including financial assessments)
This economic analysis needs to include a detailed look at key industries and anchors and
specific quantitative and qualitative data on how they have been impacted by the disaster.
This analysis will provide insight into the current state of the economy including whether
economic development targets should be re-evaluated, a better understanding of
competitive positioning; and will lay the foundation for a long-term economic development
strategy for the community.
It may be beneficial to have a third party conduct this economic analysis, due to:
limited local capacity issues
assurance of a speedy planning process
the need for a fresh perspective on the situation
The following steps will assist with the economic analysis:
review existing strategic plans and studies for relevancy, evaluate existing business
development targets, and revisit economic issues
solicit information and input from local advisory groups
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conduct additional focus groups around key topics to help identify specific challenges
and opportunities
conduct economic development forums with various stakeholders (economic
developers, planners, local government, businesses, citizens, etc.) to focus on specific
geographic areas such as Noosa Heads, the eastern beaches, industrial areas,
shopping centres, rural towns and rural residential areas; or functional areas like,
tourism precincts or primary production
Step 3: Fully assess the situation on the ground
It is important to take the time to really understand the post-disaster economic analysis
before any actions are proposed or implemented. A deep understanding of the current
situation will provide critical insight on how the community should move forward.
Step 4: Create an action plan outlining strategies, programs and activities to be
undertaken to achieve economic recovery.
Create action plans to provide direction on economic recovery priorities. The plan should be
updated as needed.
Seek to:
include a phased approach to economic recovery where clear goals and objectives are
set for the short, medium and long term recovery. Emphasis should be placed on long-
term goals, to ensure transition between economic recovery and long term
development. This could be for many years
assign appropriate organisations to take ownership of and carry out each task
ensure these organisations have the resources to carry out each task, in terms of
capacity, ability and financial means. See additional resources as necessary
ensure that business retention and expansion is addressed before any new business
efforts take place. Existing businesses are the ones that are most likely to rebuild the
economy
ensure that strategies and actions are specific, with measurable outcomes, to provide a
basis for monitoring progress
Step 4a: Coordinate the action plan with the development of an effective
communications strategy
The public should be aware of this planning effort and how time, resources and funds will be
prioritised.
25.19 Checklist
A checklist of considerations for Economic Recovery is provided at Appendix 27.6.
26. Environment Recovery
26.1 Introduction
The environment is defined to include ecosystems and their constituent parts, including:
people and communities
natural and physical resources
qualities and characteristics of locations, places and area
social, economic and cultural aspects
Australian Environment Protection and Biodiversity Conservation Act 1999
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26.2 Components of environment recovery
The ways in which damage to the natural environment impacts on community, infrastructure
and the economy are considered in other parts of this plan; this section deals with the effects
of a disaster on Noosa’s ecosystems particularly:
the air
the coastline
water and rivers
land and soil (and organic matter)
plants and animals
The table below outlines some of the effects of impact of disasters on our natural
ecosystems.
Table 8 - Examples of impacts of disasters on the natural environment by component
(AEMI Community Recovery Handbook 2)
Component of the
Aspects of this component relevant
natural Some examples of effects
to disaster management
environment
Air particulates immediate: asthma cases
chemicals longer term: deposition of
biological aerosols particulates residues on assets
radiation dust from wind erosion—
denuded landscape (fire, drought)
heatwave deaths
deaths from bushfire smoke
affecting air quality
Coastline oil and chemical contamination oil spill contaminating beaches
changes to the coastline severe storm eroding beaches
and sand dunes
changes to river mouth
debris washed onto beaches
Water and rivers: Quality: • impact on economic production
• surface water • biological contamination from loss of irrigation systems
• ground water • particulate contamination • loss of capacity (drinking water
• marine • chemical contamination etc)
• artificial storages • dissolved oxygen levels/ quality in • severe flooding and erosion
waterways • changes to ecosystems
Quantity
• changed river flows
• changed groundwater storage
• flow regimes
• biological contamination/
introduced pests
Land and soil: • loss and movement - erosion • significant erosion after a fire or
• landscapes and/or deposition flood, earthquake or cyclone can
• rocks • quality and condition - change the course of waterways,
• soil contamination reduce the productivity of
• geo-heritage • changes to soil—acidification, farmland and create erosion risks
structure change, compaction for infrastructure both up and
• damage to landforms and down stream
landscapes • impacts on flora and fauna.
Including natural, cultural and
geo-heritage sites
Plants and animals • loss of species and populations Increased interaction between
(biodiversity), especially wildlife and humans due to animals
threatened species being
• change in abundance of species • disorientated,
• predators • displaced
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Component of the
Aspects of this component relevant
natural Some examples of effects
to disaster management
environment
• competitors • vehicle collisions
• changes in recruitment -whether
seedlings can survive Undesirable impacts:
• loss of habitat • kangaroos/rabbits grazing in
• disease gardens,
• pollination • noisy birds (such as corellas)
concentrated in civic areas
• foxes coming into yards and
killing domestic animals or
spreading disease to pets
• introduced predators
concentrating on native species
and livestock remaining in the
landscape (advantaged by no
harbour for wildlife). This can
wipe out threatened species and
can impact on farm
production/survival.
• rabbits competing with native
wildlife for scarce food resources,
impact on regeneration of plants,
impact on pasture/crop production
• weeds are first to establish on
bare ground and can outcompete
native plants and
agriculture/pasture plants.
• birds may move out of the area
thereby reducing pollination
activity and/
• or allowing insect activity to get
• out of balance.
26.3 Environment impact assessment and needs analysis
Usually environmental impact statements are designed to assess and protect environmental
values where development is proposed. These procedures can easily be adapted to the
post disaster situation to identify significantly ecosystem attributes and the likely impacts
from the disaster.
An environmental impact statement usually includes a broad survey of the impacted area
(usually through desktop analysis of existing data resources and, if required, the use of
survey methods). Attached is an initial environmental impact assessment from ex tropical
cyclone Oswald.
Example
Disaster Coordinator Northern
Local Government Area Sunshine Coast Council
Noosa beaches have been eroded by high tides and waves
generated by ex-TC Oswald. There have been reports of
seawall failure at some locations. Most beaches have been
closed to the public due to high seas and erosion. SCRC can
actively manage the beach area to reduce safety hazards
associated with high erosion scarps on dunes under an
existing minor works guideline prepared by EHP. This may
Coastal also include the removal of debris.
Coastal areas and structures suffered erosion and damage by
high tides and waves. Tidal works required to protect and
Debris recover areas and structures.
Newly constructed landfill liner inundated with flood waters.
Landfills TEL issued to release flood water. No further recovery effort
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required.
Closed - Croamhurst Conservation Park; Cooloola (Noosa
River) Resources Reserve. Partly open - Dularcha National
Park; Bribie Island National Park; Kondililla National Park;
Maleny National Park; Mapleton Falls National Park; Mapleton
National Park; Mooloolah River National Park; Parklands
Conservation Park; Ringtail Forest Reserve; Tuchekoi National
Protected Area Estate Park.
EHP Southern Region: 4 TEL applications received. 3
approved, 1 refused. Noosa Shire Council landfill - approved
31/1/13; Transpacific Industries, Bundaberg - approved 1/2/13;
Temporary Emissions Licences (TELs) Holicim, Toowoomba - refused 1/2/13; Holicim approved 6/2/13
European heritage sites damaged through sewer/
flooding issues/ coastal erosion (WW2 bunkers on
Bribie)
Region wide coastal erosion
Bribie island break through issue
Increased sediment movement through rivers to open
ocean including impacts on near shore
ecology/ reefs, impacts on coastal ICOLL fish
breeding habitats
Landslips at a number of sites
Loss of dunal vegetation from erosion
Vegetation dieback from foam impacts
Increased midden site exposure due to erosion
Local Council advice
Turtle nest lost due to erosion (16 nests)
Contact: Michael Anderson
Vegetation loss and damaged throughout the
[email protected]
protected area network (including significant hollow
bearing trees)
Significant riverbank/ creek bank erosion issues and
assoc riparian vegetation loss
Damage to protected area infrastructure – e.g.
signage/ trails/ fire tracks
Seagrass decline
Sewer network failure and associated contamination
issues (e.g. reduction of DO levels)
General debris and aquatic weed movement through
waterways
Increased acid sulphate leachate movement from
development sites
Exotic fish movement through waterways (e.g. Ewen
Maddock Dam)
Public health/ hygiene issues associated with wide
spread event factors such as power loss e.g. food/
water contamination
Able to provide specific examples of each of the listed
items above if needed.
In some cases, ecological survey techniques need to be employed to assess specific
concerns, or to gain a broad audit of natural environmental impacts and likely consequences
of the disaster. A rapid response research capacity following a large-scale natural
disturbance assists in understanding the ecosystems dynamics and long-term
consequences of natural disasters.
26.4 Interaction with the other pillars of recovery
Often there is a high level of activity post-disaster to restore infrastructure services and
‘normal’ environmental considerations may be bypassed (for example, seeking vegetation
clearance approvals). Although quick action is essential, good environmental practices, if
built into the process beforehand, can still be applied. The LDRC should consider any
competing outcomes between the environment recovery effort and that of the other pillars of
recovery.
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26.5 Principles of ecologically sustainable development (in recovery)
Ecologically sustainable development (ESD) is ‘development which aims to meet the needs
of today, while conserving our ecosystems for the benefit of future generations’ (Ecologically
Sustainable Development Steering Committee 1992).
Noosa will seek to abide by the objectives and principles of the national strategy for
ecologically sustainable development which includes three core objectives and seven
guiding principles. These are provided below in Table 9
Principles of ecologically sustainable development
The Goal is:
Development that improves the total quality of life, both now and in the future, in a way that
maintains the ecological processes on which life depends.
The Core Objectives are:
to enhance individual and community well-being and welfare by following a path of
economic development that safeguards the welfare of future generations
to provide for equity within and between generations
to protect biological diversity and maintain essential ecological processes and life-
support systems.
The Guiding Principles are:
decision making processes should effectively integrate both long and short-term
economic, environmental, social and equity considerations
where there are threats of serious or irreversible environmental damage, lack of full
scientific certainty should not be used as a reason for postponing measures to
prevent environmental degradation
the global dimension of environmental impacts of actions and policies should be
recognised and considered
the need to develop a strong, growing and diversified economy which can enhance
the capacity for environmental protection should be recognised
the need to maintain and enhance international competitiveness in an
environmentally sound manner should be recognised
cost effective and flexible policy instruments should be adopted, such as improved
valuation, pricing and incentive mechanisms
decisions and actions should provide for broad community involvement on issues
which affect them
No objective or principle should predominate over the others. A balanced approach is
required that takes into account all these objectives and principles to pursue the goal of
ecologically sustainable development.
Table 9 –Principles of ecologically sustainable development (in recovery)
(AEMI Community Recovery Handbook 2)
26.6 Using an environmental risk management approach
Given the complexity of the natural environment it is likely that there will be significant
uncertainty in managing environmental recovery. Decisions will often involve lengthy time
spans and assumptions about projected impacts and may involve significant uncertainty.
Using a risk management approach may help determining the environmental risks and how
best to treat them. It provides a structured, systematic approach to decision making. The
Australian / New Zealand standard for Risk Management - AS/NZS ISO 31000:2009 Risk
management— Principles and guidelines is the principal reference for this process. The
general risk management process can be adapted to suit the needs of environment recovery
planning.
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To assist in adapting the risk management approach to environment recovery, the sub-group
may choose to seek answers to key questions at each stage of the risk management
process.
These are outlined in the following paragraphs:
26.7 Establish the context for recovery of the environment
Question: What has happened to the natural environment as a result of the
disaster/emergency?
Action: initially the action is to investigate, monitor and evaluate the impacts. The natural
environment is a highly complex system. Some aspects of the environment might continue
to function well, but others may be devastated. Consideration should also be given to how
the environment reacts over time. For example, air quality immediately after a bushfire may
be bad, but soon recovers, but river water quality and biodiversity may be severely impacted
for many weeks or longer.
Question: Can the natural environment adequately recover on its own in an acceptable
timeframe?
If the answer to this question is ‘yes’, the natural environment will adequately recover on its
own in an acceptable timeframe, and no specific recovery activity needs to be undertaken (a
valid treatment option).
Action: continue to investigate, monitor the impacts (immediate and future) and evaluate the
ability of the natural environment to cope.
If the answer is ‘no’, the natural environment cannot adequately recover on its own.
Action: identify, analyse and evaluate the risks to the natural environment. (See ‘Identify
risks’, ‘Analyse risks’ and ‘Evaluate risks’ below.) In order to do this, criteria for evaluating
the risk need to be established.
Other questions that might assist in answering the question include:
• what was the state of the natural environment and how was the natural environment
progressing (refer to the Environment Profile for the Noosa in Part B to this plan.
• how is it now functioning?
• can it be fully functional again?
• do we need a different plan to achieve effectively functioning ecosystems?
Some guiding objectives that might be appropriate to the process of answering these
questions and establishing the context after disaster include:
1. avoid or prevent environmental harm
2. reduce or minimise environmental harm
3. mitigate the effects of environmental harm
4. offset any environmental harm
Question: what are the criteria against which the risk to the natural environment is to be
evaluated?
Action: Decisions may be based on operational, technical, financial, legal, social or natural
environment or other criteria.
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26.8 Identify environmental risks
Identify the risks (threats and opportunities) that result from the disaster and impact on the
natural environment and ecosystem services. Questions that might need to be considered
include:
• is there an impediment to the environment recovering on its own (for example,
contaminated soils or bare soils at risk of weed invasion might prevent regeneration of
indigenous species, which can result in reduced agricultural productivity)?
• is a priority environmental function (or an ecosystem service) now absent and unable to
recover quickly, such that you need to steer or hasten the recovery process (for
example, contaminated and reduced water supplies after a fire because the damage to
the catchment has reduced the capacity of the landscape to filter the drinking water)?
• is there an opportunity to improve the natural environment where the previous status
was degraded?
26.9 Analyse environmental risks
Analyse the extent of the risks to the natural environment (the likelihood and the
consequence of risks) so that a level of risk can be estimated:
• how big are the risks?
• are the risks tolerable?
26.10 Evaluate environmental risks
Making decisions about the ability of the natural environment to cope depends on pre-
established assessment or evaluation criteria and objectives. Evaluate the risks in order to
prioritise treatment options:
• what risk treatments are required?
• should the management of these risks be prioritised?
26.11 Treat environmental risks
Treatment options include actions to:
• monitor and observe
• prevent or avoid environmental harm
• reduce or minimise environmental harm
• mitigate the effects on the environment and community
• offset the damage
Options and strategies for treating risk can be assessed in terms of:
• potential benefits
• effectiveness in reducing losses
• cost to implement the option(s)
• impact of the control measures on other stakeholder objectives, including the
introduction of new risks or issues
Often decisions are made in light of comparison of the cost (dollar and environmental) and
economic impacts.
Some activities will have benefits for many natural environment components. For example,
fencing to exclude livestock from key areas can:
• improve native vegetation recovery (by reducing grazing impacts)
• improve water catchment qualities (through less faecal material in waterways)
• reduce risk of soil erosion (more vegetation cover equals less sediment run-off)
• in the longer term, impact on maintenance of water quality
26.12 Monitor and review
Rapidly changing circumstances post-disaster require ongoing investigation, monitoring and
evaluation. In light of this, the risk management process should be reviewed regularly to
ensure the risk treatment plans/recovery plans remain the best option.
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26.13 Communicate and consult
To attain maximum effect it is important to ensure engagement by all aspects of community
and all levels of government, and a broad range of subject matter expertise as the risk
management process or the recovery planning proceeds.
The natural environment is a highly complex area to assess and engaging the appropriate
expertise is essential. In Australia management and governance of the natural environment
is conducted by a mix of public and private and non-government organisational entities, with
varying standards and regulations. Engagement with these is critical to any natural
environment recovery activity.
Appendix 27.17 graphically depicts the above process.
Table 10 gives examples of options or strategies for treating risk in the natural environment
(under the components of air, water, land and soil, and plants and animals).
Air Water Land and soil Plants and
animals
Monitor/ • emissions (source) air • drinking water • soil stability • establish
observe monitoring program sampling and erosion survival of
• ambient (community) program potential and current
air monitoring • recreational surveys threats to
program water body • soil important
• personal (recovery sampling contamination species
Worker) air monitoring • natural water assessments • flora/fauna
program body and surveys
• deposition (fall out) sampling environmental
monitoring program program and health
risk
assessments
• topsoil
capability for
regeneration
of flora
Prevent/ • aerial incendiary • keep people • implement
avoid practices out of hygiene
• whether or not to put contaminated protocols to
hazardous materials waterways prevent
fire out—let it burn out • remove oils, spread of
and get the oxygen fuels etc from disease to
out or stop it burning wrecked /within the
so it doesn’t vehicles etc natural
contaminate the air • recycling of environment
• extinguish fires wastes to • keep livestock
• there may be minimise out of
occasions where the discharges or sensitive
decision is made that • impacts on areas by
the benefits gained by water fencing (to
allowing the fire to resources avoid grazing
burn outweigh the impact,
smoke pollution. improve
Assessment should recovery of
always be based on plants)
the fire rather than the • hygiene
smoke pollution protocols
• in planning post fire • controlling
recovery of an where
ecosystem sufficient machinery
time for recovery must goes so it
be given before the doesn’t
next control burn is impact on
implemented. certain
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Air Water Land and soil Plants and
animals
Frequent fire too often /threatened
can reduce floral species
biodiversity, such as • replacement
in dry sclerophyll of nesting
eucalypt or heathland. boxes where
Refer to SEQ fire and they are a
biodiversity guidelines part of a
• prevent dust lift off by monitoring or
stabilising land/use of research
fencing, mulching etc program
• manage wastes to • supporting the
prevent emissions welfare of fire-
• manage pesticide affected
applications to wildlife
prevent spray drift
Reduce/ • treat air emissions • use booms, • rehabilitating • control of
minimise (e.g. apply water filters on oil control lines introduced
sprays, filters, spills minimises the predators at
containment) to potential for key sites to
reduce the volume erosion protect
and/or render the threatened
emission less harmful species and
• minimise impact on livestock
the environment • conduct
through response works to
techniques/practices minimise the
• minimise exposure to potential for
humans and animals invasion of
by keeping them weed species
away from the area to ground
where the air is made bare
contaminated from wildfire
and along
waterways
Render • filter • interventions
harmless contaminated between
water to hillsides and
remove creeks (such
suspended as straw/wire)
solids, to stop hill
chemicals, creep and
biological sedimentation
hazards in creeks
Mitigate • limit the exposure of • composting • translocate
the people and animals to practices for key (e.g.
effects areas of air disposal of highly
contamination carcasses— threatened)
• decontaminate plants, less impact species to
animals, buildings, on the water safer
equipment table refuge
• provide suitable • wildlife rescue (including into
protection and safety • temporary captive
for recovery habitat breeding
volunteers construction facilities if
and feeding necessary) to
• cleaning of ensure
rain water survival of the
tanks, species
replacement
water • replace
supplies and protective
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Noosa Local Disaster Recovery Plan 2015/2016
Air Water Land and soil Plants and
animals
filtration fencing
around
threatened
plants to
exclude
browsing and
grazing
animals such
as rabbits,
deer and
kangaroo
Offset • where an
the event causes
damage irreversible
damage to
high-priority
vegetation,
selecting a
separate
patch of land
for restoration
may be an
acceptable
offset
• provision of
artificial
nesting boxes
can provide
temporary
habitat for
displaced
animals
(shelter from
weather and
predators,
provide safe
breeding etc)
• high-priority
vegetation
that has been
devastated by
a bushfire—
select a
separate
patch of land
for
reafforestatio
n over a
period until
the initial area
has recovered
Table 10 – Examples of recovery activities (risk treatment options) in the
natural environment listed by natural environment component
(AEMI Community Recovery Handbook 2)
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Noosa Local Disaster Recovery Plan 2015/2016
List of Tables
Table 1 – Functional Lead Agencies (State level)
Table 2 – Main Steps in the Recovery Process
Table 3 – Recovery Activation, Triggers and Actions
Table 4 – Community Sectors to be considered in Community Needs Analysis
Table 5 – SMEAC Structure for Operational Planning
Table 6 - Economic & financial impacts of disasters at the household and business /
industry level
Table 7 - Direct and indirect economic impacts of disaster on key community sectors
Table 8 – Examples of impacts of disasters on the natural environment by component
Table 9 – Principles of ecologically sustainable development (in recovery)
Table 10 – Examples of recovery activities (risk treatment options) in the natural
environment
List of Figures
Figure 1 – Interaction between prevention, preparedness, response and recovery
Figure 2 – National Recovery Principles
Figure 3 – Three levels of Recovery
Figure 4 – Community driven Recovery Process
Figure 5 – Recovery Reporting and Resource Flow
Figure 6 – Noosa Recovery Framework
Figure 7 – Response and Recovery Levels of Activation
Figure 8 – The Recovery Needs Analysis Concept
Figure 9 – Recovery Project Cycle
Figure 10 – The multi-layered aspects of the community
Useful Checklists
1. Pre-event planning
2. Community recovery management/coordination
3. Recovery management/operational considerations
4. Outreach
5. Evacuation/Emergency Relief Centre
6. Recovery Centre
7. Human Resources (managing people)
8. Community Recovery Evaluation
References used in the development of this plan
Queensland Recovery Guidelines, 2012
Australian Emergency Management Handbook 2 - Community Recovery
Australian Emergency Management Series – Manual 10 – Recovery
Australian Government – NDRRA Determination 2012
QRA – Rebuilding a stronger, more resilient Queensland
QRA – Operation Queenslander – Local Plan
Queensland 2013 Flood Recovery Plan
South Burnett Recovery Plan
Other Useful References for Recovery
International Recovery Platform - http://www.recoveryplatform.org/
Volunteering Queensland - www.volunteeringqld.org.au
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27 Appendices
27.1 Phases individuals and communities might experience post-
disaster
(AEMI Community Recovery Handbook 2)
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Noosa Local Disaster Recovery Plan 2015/2016
27.2 Noosa human/social profile
Noosa Shire is located in South East Queensland, approximately 120 kilometres north of
Brisbane. The region is bounded by the Gympie Regional Council in the north and west, and
the Sunshine Coast Regional Council to the south.
The Shire encompasses a total land area of 871.6 km2 with over 800 kilometres of roads
and nearly 450 kilometres of bikeways.
The Shire is the catchment for the Noosa River and its tributaries that flow to the east and
the Mary River and its tributaries including Six Mile Creek which flow to the north.
Much of the native vegetation of the region has been removed or greatly modified, and the
main forms of native vegetation that remain include tall open eucalypt forests along the
western borders and remnants of melaleuca forest and open heaths along the coast.
Some 28,655 hectares of Noosa is considered to have outstanding environmental,
biodiversity and natural history values and is managed primarily for conservation. A further
30,653 hectares of land is predominantly undeveloped and sustainably managed through
voluntary agreements such as Land for Wildlife.
Major natural features of the shire include: Great Sandy National Park, Laguna Bay, Lake
Cooroibah, Lake Cootharaba, Lake Macdonald, Lake Weyba, Mt Cooroora, Mt Cooroy, Mt
Tinbeerwah, Noosa National Park, the Noosa River, Ringtail State Forest, the Six Mile
Creek, Tewantin National Park, and Yurol State Forest.
Indigenous background
The original inhabitants of the Noosa Council area are the Kabi Kabi or Gubbi Gubbi
Aboriginal people.
Settlement history
European settlement dates from the 1850s, with land used mainly for grazing and timber-
getting. Population was minimal until the 1860s, when several townships were established
and agriculture, including sugar-cane growing, became more popular. Growth took place
from the late 1800s into the early 1900s, spurred by the opening of the railway line between
Brisbane and Gympie in 1891. Land was then used for fruit growing and dairy farming.
Expansion continued during the 1920s and 1930s aided by tourism and improved access.
Significant development occurred during the post-war years, particularly from the late 1960s.
Demography
In 2013 the estimated population of the Shire was 52,400 persons.
The bulk of the population (38750 people) lives along the coast extending from Peregian
Beach in the south to Tewantin in the north. Population density in the coastal region is
approximately 400 persons per square kilometre.
In the hinterland the overall population density is around 25 persons per square kilometre.
The largest hinterland towns are Cooroy, Cooran and Pomona; all of which are located
along the railway corridor. Other centres of population are Boreen Point, Federal and Kin
Kin. Smaller clusters of rural residential settlement also occur throughout the hinterland.
The dominant housing form in the Shire is a detached house and this is most particularly the
case in Tewantin and the hinterland. In Noosa Heads and Noosaville up to 20% of occupied
private dwellings take the form of units or apartments and over 18% are semi-detached
(generally duplexes). Along the eastern beaches nearly 14% of occupied private dwellings
are apartments and approximately the same proportion is semi-detached.
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Noosa Local Disaster Recovery Plan 2015/2016
Like other coastal Queensland communities, the Noosa community is aging and over 20% of
the population is 65 years or older. In Noosa Heads, Noosaville and Tewantin the figure is
over 25%. The last five years has seen a noticeable increase in the proportion of residents
over 45 years while the proportion of residents in nearly below 45 years has been
decreasing. Age groups between 15 and 35 years are particularly underrepresented and the
annual number of births in Noosa has also been decreasing.
Reflective of the older population, Noosa has a relatively high level of home ownership with
over 36% of occupied private dwellings being fully owned and almost a further 32% being
purchased.
Approximately 22% of the Noosa population were born overseas with the distribution being
as high as 28% in Noosa Heads and Noosaville but only 18% in the hinterland. Most of
these are from English speaking backgrounds with England being the most frequently
recorded country of birth followed by New Zealand, although there is also healthy
representation from Germany, South Africa, Scotland, Netherlands and the USA.
At the time of the 2011 census over 16% of the population said they were living at a different
address one year earlier and 43% said they lived at a different address 5 years earlier. This
pattern is noticeably higher when you look specifically at Noosa Heads and Noosaville
where the figures were 20.2% one year ago and 48.6% five years ago. In all other parts of
Noosa the figures were at or below state averages.
In the 12 months to March 2013 there were 2.5 million domestic and international visitors to
Noosa.
Administrative centres
The major centre in the shire is Noosa Heads, with smaller centres at Tewantin. These
centres accommodate key education, business, service and retail uses.
In the hinterland the railway towns of Cooran, Pomona, and Cooroy provide services to their
local communities, as do the smaller villages of Boreen Point, Federal and Kin Kin.
The Noosa Council offices are located in Tewantin at 9 Pelican Street.
Community organisations
There are over 400 community, sporting, cultural and service groups across the Shire. For
further information on individual groups refer to the Sunshine Coast Community Hub
database.
Website address: http://community.sunshinecoast.qld.gov.au/
Healthcare
The Sunshine Coast Hospital and Health Service (SCHHS) extends from Tin Can Bay and
Glenwood (34 km from Gympie) in the north, to Beerburrum in the south. The Health Service
operates four public hospitals (Nambour, Caloundra, Maleny and Gympie) in the region.
In addition to the public hospitals the Noosa Hospital is one of five private hospitals
operating in the region. The others are Caloundra Private, Nambour Private, Sunshine Coast
Private Hospital and the Sunshine Coast University Private Hospital.
Medical clinics, some open 24 hours, serviced by GPs, registered nursing and specialist
staff (such as radiology, physiotherapy and psychologists) are located in the larger towns
within the Shire.
There are community pharmacies located in towns, villages and shopping centres
across the Shire.
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Noosa Local Disaster Recovery Plan 2015/2016
The Department of Communities, Child Safety and Disability Services provides disability
services, support and facilities to people with a disability and their careers living in Noosa
Community Integrated Sub Acute Services (CISAS) are delivered in a variety of settings
including hospitals, community based centres, residential aged care, satellite and
outreach services, mobile services and in peoples homes. These services include:
Oral health
Breast Screen Queensland
Glenbrook Residential Aged Care Facility
Dove Palliative Care Unit
Palliative Care Outreach
Aboriginal and Torres Strait Islander Health
Transition Care Program
Community Sub Acute Program (CSAP)
Community Rehabilitation
Aged Care Assessment (ACAT)
Adult Health Program
Community Hospital Interface Program (CHIP)
Queensland Magistrates Early Referral into Treatment (QMERIT)
Alcohol Tobacco and Other Drug Services (ATODS)
At the local level Noosa Council is responsible for the maintenance of public health in liaison
with Queensland Public Health’s Sunshine Coast Public Health Unit.
In July 2012 a Health Sub Committee was formed as part of the Sunshine Coast District
Disaster Management Group.
The Health Services Sub Committee identified the need to establish a Health Sub Plan,
which provides clearly defined points of contact and outlines strategic management for
all aspects of relevant health care impacting the Gympie, Noosa and Sunshine Coast
communities in the event of a disaster. This sub plan was adopted in September 2013
and updated in September 2014.
Aged care
With a growing aged population, the region has experienced the development of state-of-
the-art aged care services along with extensive medical and supporting infrastructure and
services.
There are four aged care facilities in the Shire with building approval for a further three
facilities:
Carramar - 186 Cooroy Noosa Road, Tewantin 5449 8799
Kabara - 20 Topaz Street, Cooroy 5447 7355
Ozcare - 80 Cooyar Street, Noosa Heads 07 5473 6400
Noosa Nursing Centre –119 Moorindil Street, Tewantin 54471840
In addition there are four retirement and mature age living villages:
Domain - 35 Walter Hay Drive, Noosaville
Hibiscus - 71 St Andrews Drive, Tewantin
Laguna - 21 Lake Weyba Drive, Noosaville
Southern Cross Noosa Waters - 39 Lake Weyba Drive, Noosaville
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Noosa Local Disaster Recovery Plan 2015/2016
Transport
Noosa is served by three primary land transport corridors:
Bruce Highway
Sunshine Motorway
North Coast railway line
and by air through the Brisbane and Sunshine Coast Airports.
Public transport across the Shire is provided by Translink.
Shopping facilities
The region has shopping precincts in each town supported by a major centre at Noosa Civic.
27.3 Noosa Economic Profile
The Noosa economy is characterised by its small scale, the proportion of open space to
development, a service industry base and its cultural and creative value.
Retail trade is the most prominent employer by industry sector, followed by accommodation
and food services, health care and social assistance, agriculture, forestry and fishing.
In terms of occupations, professionals are the most prominent occupation followed by
technicians and trades (source ABS 2011a).
Tourism is Noosa's major economic driver with an estimated 1.7 million visitors spending
approximately $601.2 million in the year ending September 2014 (TRA 2014a & 2014b).
In 2013 approximately 7,246 businesses operated within the Noosa Shire with 90% of these
employing less than five staff. (source ABS 2014k)
The majority of businesses and industry are consolidated in the southern coastal localities of
Peregian Beach, Sunshine Beach, Noosa Heads, Noosaville and Tewantin.
The most significant hinterland town in terms of business and employment is Cooroy.
The Shire Business Centre at Noosaville is the regions primary business and retail centre,
with secondary business centres located in Cooroy, Noosa Junction, Noosaville and
Tewantin. Neighbourhood centres are located in Peregian Beach, Sunshine Beach, Hastings
Street, Weyba Road, Noosa Outlook and Noosa Bushlands; with village centres located in
Boreen Point, Cooran, Pomona, Kin Kin (see attached map).
Industrial land is located in Noosaville in the area surrounding Eumundi Road; the Lower
and Upper Mill Sites and Jarrah Street in Cooroy; Factory and Hill Street in Pomona and
Main Street Kin Kin (see attached map).
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Noosa Local Disaster Recovery Plan 2015/2016
76
Noosa Local Disaster Recovery Plan 2015/2016
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76Section 86
Noosa Local Disaster Recovery Plan 2015/2016
27.4 Noosa infrastructure profile
Preamble
Critical infrastructure detailed in this report includes public and community assets as follows:
community facilities – schools, community centres and halls, health care facilities, aged
care, sports facilities, local government administration and works depots
emergency services – police, ambulance, fire and rescue, SES, rural fire and coast
guard
transport – roads, bridges, ferry and rail
services – electricity, water, sewerage and telecommunications
It does not include residential, industrial or commercial infrastructure.
27.4.1 Community facilities
Community facilities include federal, state and local government owned infrastructure, as
well as facilities owned by not for profit organisations and some privately owned. All
community facilities that are considered critical infrastructure are shown on Disaster
Recovery Critical Infrastructure Map A.
Schools
School name Address
Kin Kin State School 26 Main Street, Kin Kin
Cooran State School 31 James Street, Cooran
Federal State School 40 Middle Creek Road, Federal
Pomona State School 74 Station Street, Pomona
Cooroora Secondary College 120 Summit Road, Pomona
Cooroy State School 59 Elm Street, Cooroy
Noosa District High School (Cooroy) 2 Tulip Street, Cooroy
Noosa Christian College 20 Cooroy Belli Creek Road, Cooroy
Tewantin State School 10 Werin Street, Tewantin
Noosa Flexible Learning Centre 12 Ernest Street, Tewantin
Noosaville State School 75 Beckmans Road, Noosaville
St Teresa’s Catholic College 45 Sea Eagle Drive, Noosaville
Good Shepherd Lutheran College 115 Eumundi Noosa Road, Noosaville
Sunshine Beach State School 269 Sunshine Beach Road, Sunshine Beach
Sunshine Beach State High School 45 Ben Lexcen Drive, Sunrise Beach
St Thomas More Catholic Primary School 75 Ben Lexcen Drive, Sunshine Beach
Community buildings
Centre name Address Potential Potential
evacuation recovery
centre Yes/No centre
Yes/No
Kin Kin School of Arts 26 Main Street, Kin Kin Yes Yes
Ridgewood Hall 2 Donnellys Road, Ridgewood Yes Yes
Federal Hall 2 Skyring Creek Road, Federal Yes Yes
Cooran School of Arts 14 King Street, Cooran Yes Yes
Pomona School of Arts 6 Reserve Street, Pomona Yes Yes
Pomona Community 1 Memorial Avenue, Pomona No Yes
House
Cooroy Memorial Hall 23-29 Maple Street, Cooroy Yes Yes
Cooroy RSL 23-29 Maple Street, Cooroy No No
Cooroy Library 9 Maple Street, Cooroy No Yes
Tinbeerwah Hall 865 Sunrise Road, Tinbeerwah Yes Yes
Tewantin Noosa RSL 5 Memorial Avenue, Tewantin No No
Noosa Leisure Centre 54 Eumundi Noosa Road, Noosaville Yes Yes
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Noosa Local Disaster Recovery Plan 2015/2016
Noosa Heads Surf Club 61 Hastings Street, Noosa Heads No Yes
The J Community 60 Noosa Drive, Noosa Heads Yes Yes
Centre
Sunshine Beach Surf 4 The Esplanade, Sunshine Beach No Yes
Club
Bicentennial Community Bicentennial Drive, Sunshine Beach Yes Yes
Centre
Peregian Beach Surf 11 Kingfisher Drive, Peregian Beach No Yes
Club
Peregian Beach 255 David Low Way, Peregian Yes Yes
Community House Beach
House with No Steps Charles Duke Memorial Drive, off Yes Yes
(located outside Noosa Fellowship Drive, Doonan
Shire boundary)
Health care
Facility name Address Type
Eden Private Hospital 50 Maple Street, Cooroy Private rehabilitation hospital
Noosa Hospital 111 Goodchap Street, Public / private hospital
Noosaville
Noosaville Seven Day Medical Shop 4, Homemaker Centre, 18 General practitioners
Centre Thomas Street, Noosaville
Noosa Heads Day & Night 32 Hastings Street, Noosa 7 days, open late
Pharmacy Heads
Aged care
Facility name Address Type
Carramar 186 Cooroy Noosa Road, Tewantin Nursing home
Kabara 20 Topaz Street, Cooroy Nursing home
Ozcare 80 Cooyar Street, Noosa Heads Nursing home
Noosa Nursing Centre 119 Moorindil Street, Tewantin Nursing home
Domain 35 Walter Hay Drive, Noosaville Retirement village
Hibiscus 71 St Andrews Drive, Tewantin Retirement village
Laguna 21 Lake Weyba Drive, Noosaville Retirement village
Southern Cross Noosa Waters 39 Lake Weyba Drive, Noosaville Retirement village
Sports facilities
Facility name Address Owned by Clear area
Kin Kin Recreation 57 Main Street, Kin Kin Noosa Council 2 hectares
Grounds
Cooran Recreation Club Cnr Bridge Street & Railway Noosa Council 1 hectare
Road, Cooran
Pomona Show Grounds 26 Exhibition Street, Pomona Noosa Show Society 8 hectares
Cooroy Sports Complex 35 Mary River Road, Cooroy Noosa Council 10 hectares
Noosa District Sports 31 Butler Street, Tewantin Noosa Council 10 hectares
Complex
Girraween Sports Eenie Creek Road, Noosa Heads Noosa Council 3 hectares
Complex
Local Government administration
Name Address Type
Noosa Council Administration 9 Pelican Street, Tewantin LDCC, Administration
Noosaville Depot 10 Bartlett Road, Noosaville Depot
Pomona Depot 11 School Street, Pomona Depot
78
Section 88
Noosa Local Disaster Recovery Plan 2015/2016
27.4.2 Emergency services
All emergency services are shown on Disaster Recovery Critical Infrastructure Map A
Agency Address
Pomona Police Station 22 Red Street, Pomona
Cooroy Police Station 2 Myall Street, Cooroy
Tewantin Police Beat 87 Poinciana Avenue, Tewantin
Noosa Heads Police Beat 48 Hastings Street, Noosa Heads
Noosa Heads Police Station 9 Langura Street, Noosa Heads
Ambulance Station Pomona 17 Reserve Street, Pomona
Ambulance Station Cooroy 41 Kauri Street, Cooroy
Ambulance Station Tewantin 4 Cooroy Noosa Road
Ambulance Station Noosa Heads 14 Langura Street, Noosa Heads
Fire & Rescue Service Cooran 50 Queen Street, Cooran
Fire & Rescue Service Pomona 2 Factory Street, Pomona
Fire & Rescue Service Cooroy 16 Myall Street, Cooroy
Fire & Rescue Service Tewantin 2 Hilton Terrace, Tewantin
Fire & Rescue Service Noosa Heads 2 Langura Street, Noosa Heads
SES Cooroy 26 Emerald Street, Cooroy
SES Tewantin 36 Goodwin Street, Tewantin
Rural Fire Service Kin Kin 57 Main Street, Kin Kin
Rural Fire Service Black Mountain Mary River Road, Cooroy
Rural Fire Service Boreen Point Davis Road, Cootharaba
Rural Fire Service Teewah 19 Mulloway Street, Teewah
Rural Fire Service Tinbeerwah 865 Sunrise Road, Tinbeerwah
Coast Guard Munna Point, Noosaville
79
Section 89
Noosa Local Disaster Recovery Plan 2015/2016
80
Noosa Local Disaster Recovery Plan 2015/2016
Community facilities and emergency services
= = . . =
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80The text continues on section 90.