The Queensland
Counter-Terrorism Committee

2008Annual Report Against the Queensland Counter-Terrorism Strategy

TABLE OF CONTENTS

1.EXECUTIVE SUMMARY

1.1Purpose

1.2The Security and Counter-Terrorism Environment

1.3Queensland Counter-Terrorism Capability Highlights 2008

2.Queensland Counter-Terrorism Committee

2.1Role of the QCTC

2.2Responsibility for Capability Development

3.Queensland Counter-Terrorism Strategy 2008 - 2010

3.1A Strategic Approach

3.2Strategy 1: Engage

3.3Strategy 2: Cooperate

3.4Strategy 3: Protect

3.5Strategy 4: Exercise

3.6Strategy 5: Develop

1.EXECUTIVE SUMMARY

1.1Purpose

This is the first report by theQueensland Counter-Terrorism Committee (QCTC) on the initiatives undertaken by Queensland Government agencies to give effect to the Queensland Counter-Terrorism Strategy 2008-10. This Report covers the period 1 January to 31 December 2008.

The Queensland Counter-Terrorism Strategy provides five strategic directions for the development and implementation of counter-terrorism initiatives inQueensland. The directions provided by the Strategy are to:

  • ENGAGE: Promote the education and involvement of the broader community in preventing, preparing, responding and recovering from terrorism.
  • COOPERATE: Strengthen arrangements by communicating, coordinating and collaborating with stakeholders.
  • PROTECT: Enhance detection and deterrence to ensure a safe environment.
  • EXERCISE: Practise and test counter-terrorism arrangements through exercises.
  • DEVELOP: Refine our preparation, response and recovery arrangements.

The strategic directions also support the sustained development of the State’s counter-terrorism capabilities to ensure that cohesive and coordinated arrangements are in place.

1.2The Security and Counter-Terrorism Environment

Queensland’s counter-terrorism capabilities are developed to reflect both the current and emerging security environment in which we live. Throughout 2008, the following key national and international factors contributed and shaped that environment:

  • The National Counter-Terrorism Alert Level remained at Medium (a terrorist attack could occur).
  • The main terrorist threat to Australia and its interests continues to come from extremists who are part of, or take inspiration fromglobal Islamic terrorism.
  • As demonstrated by the 2008 attacks in India on Mumbai hotels and train stations, the likelihood of attacks against western targets in the region cannot be discounted.
  • 18 organisations remained listed throughout 2008 under the provisions of the Criminal Code (Cwth) as terrorist organisations – subsequently making it an offence to associate with these organisations.
  • A number of Australian citizens have been charged and/or convicted of engaging in terrorist activities including training, providing support or planning attacks. These incidents have highlighted a desire of Australian-based terror groups to target symbolic and economic institutions as well as places of mass gatherings.
  • The Commonwealth Government’s National Security Statementwhich outlines the national security policy and vision for enhancements to the national security structure. The Statement sets the directions for the scope of national security, national security interests, principles and priorities.

1.3Queensland Counter-Terrorism Capability Highlights 2008

Throughout 2008 Queensland Government Agencies undertook more than 170 initiatives as part of each agencies core business activities to implement the Queensland Counter-Terrorism Strategy. Major areas of achievement including significant actions to ensure that functional capability was maintained and enhancedduring 2008 included:

  • The development of a Queensland Terrorism Risk Context Statement to assist guide capability developmentand ensure that Queensland’s counter-terrorism capabilities are proportionate to the assessed threat and associated risk.
  • New strategic governance arrangements in a terrorism context including:

a combined ministerial and senior officials committee to provide strategic direction (the State Security Committee) during an incident or threat, as required;

a mechanism for facilitating a coherent, whole-of-government public information effort (the Crisis Communication Network); and

a strengthened relationship with the senior officials of the State's Disaster Recovery Group.

  • Finalisation of the major Transport Precinct Review with the release of the report: Review of Counter-Terrorism Plans and Arrangements at Five Major Queensland Transport Precincts.
  • Queensland’s participation in Mercury 08, a multi-jurisdictional counterterrorism exercise that focused on strategic policy, consequence management and mass casualty response arrangements.
  • An integrated multi-agency approach to the conduct of counter-terrorism exercises in Queensland was implemented following strategic changes to the operation of the Queensland Counter-Terrorism Training and Exercising Management Committee.
  • In conjunction with the Commonwealth and other state and territory jurisdictions, commenced work on countering violent
  • The establishment of the Chemicals Security Management Framework and endorsement of the Inter-Governmental Agreement giving effect to the roles, responsibilities and mechanisms by which governments will implement this framework.
  • Queensland’s multi-agency preparedness for major incidents involving Chemical, Biological, Radiological and Nuclear (CBRN) material through refreshing the State CBRN Committee and better aligning the Committee with national security and emergency management arrangements.
  • The proclamation of the Transport Security (Counter-Terrorism) Act 2008and development of the Queensland Plan for the Protection of Surface Transport Operations from Terrorism.
  • Development of a Disaster Framework to support integrated public information disseminated from call centres.
  • International accreditation for Queensland’s Urban Search and Rescue capability.
  • Refined the Protocol for a Significant Threat to the Public Transport System to enhance operational response, decision making and information sharing.

2.Queensland Counter-Terrorism Committee

On 13December2004, the Queensland Government approved the formation of the Queensland Counter-Terrorism Committee (QCTC) to formalise existing networks and arrangements to facilitate communication and the implementation of both state and national counter-terrorism initiatives. The QCTC is co-chaired by Queensland’s two National Counter-Terrorism Committee (NCTC) representativesand is comprised of senior representation from the:

  • Department of the Premier and Cabinet (Co-Chair)
  • Queensland Police Service (Co-Chair)
  • Department of Emergency Services
  • Queensland Transport
  • QueenslandHealth
  • Department of Mines and Energy
  • Department of Primary Industries and Fisheries
  • Department of Natural Resources and Water

Representatives from Multicultural Affairs Queensland, Department of Communities also attend QCTC meetings and contribute toward Queensland’s Counter-Terrorism capabilities by assisting with the development of initiatives designed to promote participation and positive community relations amongst diverse community groups.

2.1Role of the QCTC

QCTC provides whole-of-government coordination and leadership for Queensland’s counter-terrorism arrangements. The missionof the QCTC is to contribute to the security and safety of the Queensland community through the co-ordination of a state-wide co-operative framework to counterterrorism and its consequences. This mission is being achieved through the following objectives:

(a)the provision of expert strategic policy advice to the Premier and the Cabinet through:

(i)effective counter-terrorism co-ordination facilitating inter-agency and inter-jurisdictional co-operation;

(ii)development of evaluation and reporting methodologies to facilitate the annual reporting process;

(iii)ensuring awareness of current and emerging trends in terrorism;

(iv)advising on the adequacy of Queensland’s counter-terrorism legislation;

(v)reviewing and monitoring the adequacy of Queensland’s counter-terrorism strategies and policies to ensure best practice; and

(vi)reviewing and monitoring the adequacy of Queensland’s critical infrastructure protection arrangements.

(b)the maintenance of an effective state-wide counter-terrorism capability by:

(i)developing strong co-operative relationships between all agencies;

(ii)ensuring an integrated jurisdictional/cross-jurisdictional response capacity exists;

(iii)maintaining effective arrangements for the sharing of intelligence;

(iv) monitoring national standards in all training disciplines to achieve best practice;

(v)ensuring that effective command, control and co-ordination strategies are established;

(vi)integrating consequence management planning with counter-terrorism response arrangements; and

(vi)ensuring the availability of appropriate systems and equipment.

(c)reporting annually to the Premier on Queensland’s counter-terrorism preparedness and capability. The Committee will otherwise report as required to the Director-General, Department of the Premier and Cabinet.

2.2Responsibility for Capability Development

The QCTC Reporting Framework was developed to ensure the effective delivery of state and national initiatives. Under the framework, a lead agency has responsibility for developing and reporting on a program of activity designed to strengthen a particular area of capability. This includestranslating the Queensland Counter-Terrorism Strategy 2008-10 into specific initiatives to be contained in those agencies’ Counter-Terrorism Strategic Plans.

The QCTC assists lead agencies to prioritise the focus of their work by ensuring it remains relevant to the current threat environment, key government initiatives, and recognised areas for improvement.

3.Queensland Counter-Terrorism Strategy 2008 - 2010

The Queensland Counter-Terrorism Strategy 2008 – 2010was endorsed by the Queensland Government in 2007 to guide the development and continuous improvement in Queensland’s counter-terrorism capabilities. This replaces the 2005-2007 Queensland Government Counter-Terrorism Strategy.

The Strategy provides five strategicdirections for the development and implementation of counter-terrorism initiatives across Government, whilst maintaining the unequivocal aims of the 2005-2007 Strategy - to prevent a terrorist attack; reduce the State’s vulnerability to terrorist attacks; and minimise the impact of any potential terrorist incident.

Under the Strategy, QCTC agencies have a role to contribute to the implementation of the Strategy through the development of an “Agency Strategic Plan”. Progress and the achievements against these Plansarethen reported annually in this Report.

3.1A Strategic Approach

Terrorism is an enduring threat which needs a long-term, proactive and collaborative response to counterit. We can sustain our commitment to countering the terrorist threat and avoid complacency by making counter-terrorism part of every day business and planning. The Queensland Counter-Terrorism Strategy supports the sustained development of our counter-terrorism capability. Each of the five strategic directions contained in the Strategy contributes to ensuring that cohesive and coordinated arrangements are in place throughout Queensland.

The Strategic Directions are to:

  • ENGAGE: Promote the education and involvement of the broader community in preventing, preparing, responding and recovering from terrorism.
  • COOPERATE: Strengthen arrangements by communicating, coordinating and collaborating with stakeholders.
  • PROTECT: Enhance detection and deterrence to ensure a safe environment.
  • EXERCISE: Practise and test counter-terrorism arrangements through exercises.
  • DEVELOP: Refine our preparation, response and recovery arrangements.

Agency initiatives undertaken in 2008 to implement the Queensland Counter-Terrorism Strategy 2008 - 2010 are detailed in Attachment Awith key activities highlighted below.

3.2Strategy 1: Engage

Strategy 1 seeks to increase community, industry and Government awareness of counter-terrorism arrangements, roles and responsibilities. Queensland’s response to terrorism and the terrorist threat are strengthened through the engagement and involvement of the broader community.

Throughout 2008 QCTC agencies undertook the following key engagement activities:

  • Developed the Safeguarding Queensland Website, which is anticipated to go live online in 2009 and provide a central location for Queensland Government policy, information, tools and advice in relation to counter-terrorism. The site will be accessible by community, industry and key stakeholders.
  • Communicated, disseminated and promoted the Queensland Counter-Terrorism Plan and Queensland Counter-Terrorism Strategy 2008 – 10across State Government agencies and with key stakeholders.
  • Enhanced industry awareness and involvement in counter-terrorism activities through targeted industry briefings on security threats and risk contexts relevant to that industry or sector.
  • Developed and delivered counter-terrorism awareness training for operational police.
  • Developed a public awareness campaign about transport security for future use on public transport.
  • Engaged with industry representatives regarding biosecurity for pest and disease threats and integrated potential bio-terrorism risks into core biosecurity considerations.
  • Through the Muslim Community Engagement Strategy, created opportunities for greater understanding between Queensland’s Muslim and non-Muslim communities, and raised awareness amongst government aboutthe Muslim community.
  • Engaging Muslim youth, including those at risk and/or marginalised in mainstream activities through the Muslim Youth Worker project, providing assistance on a range of issues including access to service providers.
  • Through research being undertaken as part of the Muslim Community Engagement Strategy, examine the impact of media representations on the understanding of Islam and attitudes towards Muslims in Queensland.
  • Proclamation of the Transport Security (Counter-Terrorism) Act 2008, that, together with the Queensland Plan for the Protection of Surface Transport Operationsfrom Terrorism aims to reduce the risks of significant adverse impacts that may be caused by terrorist acts against security-identified surface transport operations.
  • In conjunction with Smart Services Queensland, developed a Disaster Framework to support integrated public information disseminated from call centres.

3.3Strategy 2: Cooperate

Queensland’s counter-terrorism arrangements are strengthened through effective communication, coordination and collaboration between stakeholders. Strategy 2 seeks to enhance counter terrorism arrangements by ensuring integrated responses are developed in partnership with government and non-government stakeholders, cross agency collaboration is maximised and that appropriate information sharing occurs. This Strategy was advanced in 2008 through:

  • The activities of the QCTC with each member agency contributing to whole-of-government coordination, collaboration and leadership in the development and maintenance of Queensland’s counter-terrorism preparedness and capabilities.
  • The implementation the Queensland Manual for Protecting National Security Information which puts processes in place to facilitate the sharing of national security information with government and non-government stakeholders.
  • Improved operations for the State Crisis and Communication Centreenhancing activities such as information flow, public information arrangements and key interactions with Commonwealth and State Government decisions makers.
  • Implementation of an Automated Notification System to pass counter-terrorism and counter-disaster information to key Government and non-government stakeholders.
  • Legislation and risk management programs aimed at reducing the risks of significant adverse impacts that may be caused by terrorist acts against security-identified surface transport operations.
  • Regular information sharing and briefing sessions held with the owners and operators of critical infrastructure.
  • The implementation of the Queensland Hazardous Materials Incident Recovery Plan to facilitate effective and systematic coordination of recovery from hazardous material incidents via a multi-agency response.
  • QCTC Member’s agencies actively participating in a range of fora, meetings and working groups on a national, state, regional and/or sectoral basis to strengthen communication and collaboration on counter-terrorism and security arrangements.

3.4Strategy 3: Protect

Enhanced detection and deterrence contributes to a safe environment. Initiatives that contributed to Strategy 3 focused on detecting terrorist threats and protecting key assets, reduce vulnerabilities which could be exploited by terrorists and identifying possible terrorist activity. Throughout 2008 the actions of agencies included:

  • The Development and implementation of protective planning arrangements for places of mass gatheringsthat includes a guided self assessment tool to help owners and operators assess their likely attractiveness as a terrorist target, advice on how to mitigate the risks associated with terrorism,and the establishment of a network of government agencies and peak bodiesinvolved in mass gatherings and events.
  • Distribution of fact sheets for Mass Gatherings and Events providing protective security advice to owners and operators.
  • Apilot program to increase operational policing interaction with business owners and operators, leading to increased detection and deterrence through intelligence-led patrolling of places of interest.
  • Reviewed and refined the operation of the Protocol for a Significant Threat to the Public Transport System to strengthen strategic decision making and associated communication following the receipt of a significant security threat to the transport system.
  • Reviewing and refining the roles and responsibilities of the Queensland Police Services Counter-Terrorism Liaison Officers (CTLOs).
  • Working collaboratively with the Commonwealth and other state and territory jurisdictions to ensure that suitable legislative tools are in place to assist terrorism related investigations and prosecutions and to implement policy or procedural changes as identified.
  • Conducting research and analysis of census data for Queensland to produce a demographic analysis for each police region to assist with intelligence lead policing.
  • Maintaining and enhancing a range of operational and response capabilities that contribute to investigating, responding and recovering from potential terrorist incidents.
  • Continued biosecurity surveillance capacity, security protocols and monitoring of bioterrorism risks across Queensland.
  • Additional equipment for first responders to enable them to better undertake urban search and rescue activities, scientific analysis of hazardous materials and enhanced personal protection.
  • Ensuring that strategies and arrangements are in place for the protection of critical infrastructure throughout the State and that those arrangements are reviewed on an annual basis.
  • Overseeing and ensuring the currency of Government Asset Protection (GAP) plans and Business Continuity Plans for relevant Queensland Government agencies.

3.5Strategy 4: Exercise

Strategy 4 promotes regular and effective exercising to practise and test counter-terrorism arrangements. Exercising improves readiness by increasing familiarity with counter-terrorism systems and arrangements, assess the adequacy of those arrangements, promotes continuous improvement, and provides opportunities for increased stakeholder and broader Government agency participation. Exercise initiatives against the Strategy in 2008 included:

  • Queensland’s participation in Mercury 08, a multi-jurisdictional national counterterrorism exercise that focused on strategic policy, consequence management and mass casualty response arrangements nationally. The exercise involved field deployments in Karratha, Western Australia and various locations throughoutQueensland.
  • During Mercury 08, Queensland’s Urban Search and Rescue capability received international accreditation.
  • A range of drill style and discussion exercises were held across various State and Local Government agencies and non-government stakeholders aimed at examining and testing a broad range of counter-terrorism capabilities and arrangements. Areascovered by these exercises and discussions included: crisis management, public information, crisis communication strategies, major transport precincts, transport operations, government asset protection, emergency operational response capabilities, mass casualties, preventative detention orders, maritime issues, incident command, bomb scenes, and health disaster management.
  • Implemented the new Whyte Island BA-HAZMAT training facility.
  • Enhanced the operation of the multi-agency Queensland Counter-Terrorism Training and Exercising Management Committee to develop a training and exercise strategy for Queenslandagencies, promoting greater collaboration and inter-agency cooperation.

3.6Strategy 5: Develop

Queensland has well practiced arrangements to prevent, prepare for, and to respond to and recover from a potential terrorist incident. However, we must not become complacent. Strategy 5 ensures that we continue to refine our prevention, preparation, response and recovery arrangements.