Sunshine Coast
Disaster
Recovery Plan
A plan for recovery operations following a disaster in the
Sunshine Coastregion
Version 1.5
19 May2015
Sunshine Coast Disaster Recovery Plan 2015
© Sunshine Coast Regional Council 2009-current.
Sunshine Coast Council™ is a registered trademark
of Sunshine Coast Regional Council.
T 07 5475 7272 F 07 5475 7277
Locked Bag 72 Sunshine Coast Mail Centre Qld 4560
Acknowledgements
Council wishes to thank all contributors and stakeholders involved in the development of this document.
Disclaimer
Information contained in this document is based on available information at the time of writing. All figures and diagrams are indicative only and should be referred to as such. While the Sunshine Coast Regional Council has exercised reasonable care in preparing this document it does not warrant or represent that it is accurate or complete. Council or its officers accept no responsibility for any loss occasioned to any person acting or refraining from acting in reliance upon any material contained in this document.
Distribution and Amendment
This is a public document and is version controlled. The document controller is:
Local Disaster Coordinator
Sunshine Coast Regional Council
This plan is designed for electronic distribution. The latest version is available on the Sunshine Coast 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.
Sunshine Coast Council maintains a distribution register of organisations and agencies that require advice of any amendment to the Plan. Sunshine Coast Council will distribute newer versions of the plan to those on the distribution register.
Amendment Register
Version Number / Date / Detail of Amendment1.0 / Initial Issue of Plan
1.1 / 18 April 2013 / Alan (Fox) Rogers edit
1.2 / 10 May 2013 / Amendments from initial consultative committee discussion PRM
1.3 / 06 September 2013 / Various Amendments
1.4 / 15 November 2013 / Minor amendments
1.5 / 19 May 2015 / Minor Amendments
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, improvethe 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 Sunshine Coast will undertake recovery operations during and following a disaster. In doing so this plan provides a framework for the management and coordination of recovery as well as guidance on the major considerations for recovery across the spectrum of Social, Infrastructure, Economic and Environmental Recovery.
Recovery is fundamentally a creative process which starts with damage assessment and needs analysis and then moves to solving complex, inter-related issues in innovative ways. This plan strives to provide a foundation upon which this can occur and complements the Sunshine Coast Local Disaster Management Plan.This plan provides a framework for the effective recovery of the Sunshine Coast Regional Council area following a disaster in accordance with the Disaster Management Act, 2003and relevant guidelines. It is endorsed by the Local Disaster Management Group.
This plan was approved for distribution at the Sunshine Coast Local Group meeting December 4 2013.
Table of Contents
PART A – Philosophy of Recovery
1.0Introduction
2.0Four Functions/Pillars of Recovery
3.0Recovery Principles
3.1Understanding the Context
3.2Recognising Complexity
3.3Using Community Led Approaches
3.4Ensuring Coordination of all Activities
3.5Employing Effective Communication
3.6Acknowledging and Building capacity
4.0Re-establishing Resilience as soon as possible after an event
5.0Post Disaster Psychology
6.0Levels of Recovery
6.1Immediate/Short Term Relief
6.2Medium Term Recovery
6.3Long Term Recovery
7.0Summary
Part B – Recovery Arrangements
8.0Recovery in the Sunshine Coast Context
8.1Regional Profiles
9.0Queensland’s Recovery Framework
9.1Authority for Recovery
10.0Sunshine Coast Recovery Framework
10.1Recovery Concept of Operations
10.2Overview of Core Sunshine Coast Local Disaster Recovery Committee membership
10.3Local Recovery Coordinator
10.4Local Disaster Recovery Committee
10.5Sub Groups
10.6Local Advisory Groups
10.7Supporting Agencies
11.0Governance Arrangements
11.1Appointments
11.2Meetings of the Local Disaster Recovery Committee and Sub Groups
11.3Records of Meetings
11.4Reporting
11.5Disaster District Role
11.6Functional Lead Agencies (State level)
11.7Establishment of a Statutory Authority by the State
11.8Establishment of State Recovery Coordinators
11.9State Recovery Group
12.0Recovery Preparedness
12.1Pre-engagement with the Community
12.2Pre-engagement with Potential Advisory Groups
12.3Training in Recovery Processes
13.0Recovery Concepts of Operation
13.1Recovery Process
13.2Activation
13.3Activation Process and Transition between Levels
13.4Transitioning from immediate/short term relief to medium level recovery
13.5Transitioning to Long Term Recovery
13.6Community Needs Analysis
13.6.1Format / Process for Community Needs Analysis
13.6.2Undertaking Needs Analysis by Sector
13.7Establish Recovery Framework
13.8The Recovery Operational Plan
13.9Action Plans
14.0Community Engagement Strategies
14.1.1Local Advisory Groups
14.1.2Public Forums/Community Meetings
15.0Training and Exercising
15.1Training
15.2Exercising
16.0Financing Recovery
16.1Natural Disaster Relief and Recovery Arrangements (NDRRA)
16.2Category A and B Arrangements
16.3Category C Arrangements
16.3.1Community Recovery Fund
16.3.2Recovery Grants for Small Businesses
16.3.3Recovery Grants for Primary Producers
16.4Category D Arrangements
16.5How to Apply for Category C or D Funding
16.6Other Funding Options for Recovery
17.0Other Payments to Disaster Affected Individuals
17.1Australian Government Disaster Recovery Payment
17.2Disaster Income Recovery Subsidy Payment (DIRS)
18.0Coordination of Donations and Offers of Assistance
19.0Recovery Centres and Outreach Services
20.0Debrief, Review and Evaluation
20.1Periodic Debriefs
20.2Final Debrief
20.3Debrief Framework
20.4Debrief Reports
PART C – Recovery Activities
21.0Introduction
22.0Recovery Project Cycle
Human/Social Recovery Activities
23.0Principles of Effective Social Recovery
24.0Categories of Human/Social Recovery
24.1Safety and Security
24.2Shelter
24.3Emergency and Short Term Accommodation
24.4Other Considerations for Recovery Accommodation
24.5Health
24.6Psychosocial Support
24.7Psychological First Aid
24.8Personal Support Services
24.9Practical Assistance as a Component of Personal Support Services
24.10Designing Individual and Household Psychosocial Support Programs
25.0Community Development Activities/Projects
25.1Managing Volunteers and Donated Goods
25.2Groups with Special Needs
25.3Children and Young People
25.4Culturally and Linguistically Diverse Communities
25.5Aged
25.6Support for the Bereaved
25.7People temporally separated from, or have lost, their companion animals
25.8Cultural and Spiritual Factors
26.0Community Development Officers
Infrastructure Recovery
27.0Introduction
28.0Categories of Infrastructure Recovery
29.0Essential Services
29.1Communications Network/Systems
29.2Energy Supplies
29.3Water Supply, Treatment and Sewage
29.4Transport Networks
29.5Food Production and Food/Merchandise Distribution
29.6Health Infrastructure
29.7Sanitation (liquid and solid waste disposal)
29.8Security
30.0Rural Infrastructure
31.0Residential Infrastructure
32.0Commercial / Industrial Infrastructure
33.0Public buildings and Asset Infrastructure
34.0Infrastructure Recovery Planning
35.0Stages/Key processes in Infrastructure Recovery
36.0Infrastructure Needs Assessment
37.0Reconstruction
37.1Planning for reconstruction
37.2Approvals and Planning
38.0Implementing Reconstruction
39.0Other Considerations
39.1Make Safe
39.2Clean Up
Economic Recovery
40.0Introduction
41.0Categories of Economic Impacts after Disaster
42.0Economic Impact Assessment and Needs Analysis
42.1Measuring Economic Impact
42.2Economic Impact versus Financial Impact
42.3Tangible versus Intangible Impacts
42.4Direct/Indirect impacts on Sectors
43.0Guidelines for Economic Recovery
44.0Economic Recovery - Management Strategies
45.0Economic Recovery - Service Delivery Strategies
46.0Economic Recovery - Enabling Initiatives
47.0Financial services
48.0Financial assistance—Public Appeal Funds
49.0Financial assistance—Insurance
49.1Insurance Council of Australia
49.2The Australian Taxation Office
50.0Public-Private Partnerships
51.0Steps to Economic Recovery
Step 1: Conduct post-disaster economic and financial impact studies
Step 2: Initiate a post-disaster economic recovery assessment and planning process
Step 2a: Identify the roles and responsibilities of all economic recovery stakeholders
Step 2b: Establish Local Advisory Groups to gather relevant data and information
Step 2c: Produce a complete economic analysis (including financial assessments)
Step 3: Fully assess the situation on the ground
Step 4: Create an Action plan outlining strategies, programs and activities to be undertaken to achieve economic recovery.
Step 4a: Coordinate the action plan with the development of an effective communications strategy
52.0Checklist
Environment Recovery
53.0Introduction
54.0Components of Environment Recovery
55.0Interaction with the other Pillars of Recovery
56.0Principles of Ecologically Sustainable Development (in recovery)
57.0Using an Environmental Risk Management Approach
Establish the context for recovery of the environment
Identify environmental risks
Analyse environmental risks
Evaluate environmental risks
Treat environmental risks
Monitor and review
Communicate and consult
Appendix 1 Phases individuals and communities might experience post-disaster
Appendix 2 Sunshine Coast Human/Social Profile
Settlementhistory
Land use
Transport
Major features
Indigenous background
Age Profile
Ancestry
Proficiency in English
Religion
Qualifications
Education level
Need for assistance with core activities
Appendix 3 Sunshine Coast Economic Profile
Appendix 4 Sunshine Coast Infrastructure Profile
Appendix 5 Sunshine Coast Environmental Profile
Appendix 7 Generic Terms of Reference for each Sub Group
Appendix 8 Possible Local Advisory Groups
Appendix 9 Agencies with Recovery Functions
Appendix 10 Example format of a Recovery Operational Plan
Appendix 11 Example format for an Action Plan
Appendix 12 List of Possible Recovery Centres
Appendix 13 Checklist—Human/Social Recovery
Appendix 14 Stages/key process elements Infrastructure Recovery
Appendix 15 Checklist for Infrastructure Recovery
Appendix 16 Environment Risk Management Approach
Appendix 17 Checklist Economic Recovery
Appendix 18 Checklist Environmental Recovery
Appendix 19 Guide to Managing Volunteers
Attachment 1 to Appendix 19 Terms of Reference – Volunteer Coordinator
Attachment 2 to Appendix 19 Insurance – Organisations involving Volunteers
Checklist 1 Pre-event recovery planning
Checklist 2 Undertake community recovery management/coordination
Checklist 3 Recovery Management/Operational Considerations
Checklist 4 Outreach
Checklist 5 - Evacuation/Emergency Relief Centre
Checklist 6 Recovery Centre
Checklist 7 Managing People
Checklist 8 Community Recovery Evaluation
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 Sunshine CoastRegional 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 Sunshine Coast Region.
Objectives
The objectives of this plan are to:
- Describe the Sunshine Coast philosophy for recovery.
- Outline the Sunshine Coastrecovery frameworks and management processes.
- Ensure 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 Sub Plan is maintained bythe 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, Sunshine Coast Regional Councilfor approval by the Sunshine Coast Local Disaster Management Group.
PART A – Philosophy of Recovery
1.0Introduction
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 Sunshine Coast Community (in whole or part) isdeemed 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 is a complex social and developmental process. Recovery 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.
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, NGO, government owned corporations, industry groups, the private sector and whole-of-community is the foundation of recovery.
2.0Four Functions/Pillars of Recovery
Effective recovery requires an integrated, multi-disciplinary approach to needs analysis, consequence management, community engagement, planning and service delivery. Coordinated effort by all agencies involved in recovery is necessary. Recovery 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.
3.0Recovery Principles
This plan has been developed in accordance with the national principles for recovery agreed in 2008.
- understanding the context
- recognising complexity
- using community-led approaches
- ensuring coordinationof 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)
3.1Understanding the Context
Recovery must be relevant to the community(ies) affected. No two disaster events are the same and the context of each event needs to be taken into account when planningand implementing recovery programs and activities. Applying the context of each event to the broader context of the Sunshine Coast across the four pillars is needed to ensure recovery effort meets the community need.
3.2Recognising Complexity
Recovery is complex and dynamic. Information on disaster impact is usually limited at first and then changes over time. There are diverse and sometimes conflicting needs, wants and expectations within the community which may also change over time. Priorities will shift and change over time. 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(s) affected. This complexity must be recognised by those developing and implementing recovery programs and activities.
3.3Using Community Led Approaches
Recovery must 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 process will enable the delivery of recovery programs and activities that are embraced by the community. [1]
3.4Ensuring 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.
3.5Employing 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 a standing member of the council media and public relations team is to be a member of the LDRC
3.6Acknowledging 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.
4.0Re-establishing Resilience as soon as possible after an event
Recovery should help re-establish resilience within individuals and communities, and the natural assets and important community connections and assets that support them 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.