Future Resilience Structures Duties, Principles and Core Roles & Responsibilities

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1 ANNEX A Future Resilience Structures Duties, Principles and Core Roles & Responsibilities Introduction 1. This paper is intended to assist SCGs in developing arrangements that will allow an effective transition from the existing 8 SCG structure to the new 3 area structure. To achieve this it: o Outlines the new high-level structure; o Suggests names for the new arrangements to establish a common vocabulary; o Details the statutory duties that will continue to apply to responders, notwithstanding the new arrangements; o Details the principles (derived from Preparing Scotland doctrine and good practice over the past 7 years) that should guide development of the new arrangements; o Provides indicative lists of the types of activity that would clearly best be managed at the 3 area level or at the more localised level. These lists are not exhaustive. 2. The paper outlines those aspects of the new arrangements that (in the view of Government) require to be structured or delivered in a consistent manner across the country. It also outlines the significant degree of flexibility that remains both in terms of the establishment of localised arrangements and the delivery of certain functions which could, in the view of Government, be delivered effectively at either the 3 area level, the localised level or (in some cases) using a graduated approach involving both levels. This should allow SCGs to commence work with their prospective partners on developing the most effective geographic and functional working arrangements for the future. Recommended early activities to progress that work are also provided. High Level Structure 3. The 3 area structure is outlined (in map form) at Annex B. The map details which health boards and local authorities fall within each of the 3 areas. Nomenclature 4. In order to allow discussions on developing arrangements to be progressed with a common vocabulary the following terms are proposed. No decision has been taken on these, although they are (at present) the most likely terms to be adopted unless difficulties are identified with them. o It is proposed that the 3 new SCG areas be referred to collectively as Resilience Partnerships (RPs). Individually they would be described as the North of Scotland Resilience Partnership, East of Scotland Resilience Partnership and West of Scotland Resilience Partnership. o It is proposed that (within each of the Resilience Partnerships) the more localised working arrangements established will be known as Local Resilience Groups (LRGs). It will be for each Resilience Partnership to determine the number and coverage of LRGs within its area, allowing it to draw on existing relationships and partnerships where that would appear to be of benefit or to develop new arrangements to best meet developing circumstances. o We are yet to decide (and would welcome views) on whether a different name is required to describe the work of RPs or LRGs in response mode. In the past it has been observed that the use of the name SCG to describe the work of responders in both planning and response mode has caused confusion. 1

2 o If a separate name for the work of these groups is required for emergency activations we could would revert to use of the well known term SCG. This is used across the rest of the UK to describe the work of multi-agency partnerships in incident response. This term could be applied to the actions of an LRG if activity is contained at that level or to the RP if it were activated to co-ordinate or manage response to a more significant incident or across a wider area. Duties and Doctrine 5. The existing duties set out in the Civil Contingencies Act will remain in place and will continue to apply to Category 1 and 2 responder agencies. The list of Category 1 and 2 responder agencies will not change nor will the legislative duties they are required to fulfil in pursuance of the Act: o to assess risk; o to maintain emergency plans; o to promote business resilience & maintain relevant plans; o to communicate with the public; o to share information; o to co-operate. 6. Regulations will be amended to establish the RP in place of the existing SCGs and will reiterate the requirement currently incumbent on SCGs to meet at least once every 6 months to support responders in fulfilling the statutory duties. Regulations will not outline the number or boundaries of LRGs. These will be developed by each RP in order to support local delivery of the duties placed on Category 1 and 2 responders. Once LRG areas have been determined by each RP these should be communicated to all Category 1 and 2 responders and to the Scottish Government, in order that the overall response structure is clearly articulated and communicated. 7. Preparing Scotland doctrine, which provides more detailed advice and guidance on delivery of the statutory duties, will continue to apply throughout the transition from 8 SCGs to 3 RPs and beyond. It will be reviewed in the light of change but the purpose of that review will be to maintain consistency with the developing arrangements. Fundamental changes to doctrine will not be proposed at the same time as structural change. The 5 key activities underpinning Integrated Emergency Management (Assessment, Prevention, Preparation, Response and Recovery) will remain the cornerstone of our approach. 8. The ability of each SCG/RP to fulfil the statutory duties and respond to incidents must not be compromised at any stage of the transitional period. SCGs are already considering how best to manage the period between the introduction of single police and fire services (on 1 April 2013) and the transition to 3 Resilience Partnership areas (which will not take place before October 2013). This phased approach will allow existing SCGs to come together in the relevant groupings to consider the most appropriate way of delivering their duties in the context of their unique geographies. Principles the What and the How 9. The planned changes to structures do not fundamentally alter what multi-agency emergency planning and response partnerships need to do. Nor do they alter the principles of IEM and the modes of effective working that have been developed by SCGs. Whilst Preparing Scotland sets out the approach to be taken in more detail the lists below provide a summary of what SCGs/RPs exist to do and how they can ensure they are working most effectively. In developing new working arrangements it will be important to keep the what and the how in mind. 2

3 The What SCGs/RPs exist to: o Provide strategic multi-agency leadership in preparing for, responding to and recovering from emergencies, co-ordinating multi-agency emergency preparation, planning, response and recovery arrangements; o Implement and develop all aspects of the Resilience Framework Cycle e.g. risk assessment, capability analysis & development, measuring and developing a statement of preparedness; o Develop and maintain capabilities & plans as required by Preparing Scotland as well as developing and maintaining other plans and processes where these are required to meet statutory requirements, local priorities and identified needs; o Facilitate effective sharing of information and good practice across all agencies and more broadly with other partnerships/sg where appropriate; o Ensure there are effective arrangements in place for responding to emergencies within the region. These arrangements should ensure that any event, whether local or across the region, is managed on a partnership basis by those responsible for the services involved. The RP (or LRG if leading the response) should support the work of the relevant agencies and (where appropriate) SGORR during incidents and emergencies by providing the framework for effective multi-agency management and by ensuring shared situational awareness through the production of an up-to-date Common Recognised Information Picture (CRIP); o Drive up standards and professionalism in the resilience field by supporting learning, development, training and exercising and by ensuring that lessons identified from exercises and incidents are captured, shared and acted upon; o Support activities to improve public awareness of the risks Scotland faces and of measures the public can take to avoid or minimise the consequences of those risks, through developing personal, household, community and business resilience. The How SCGs/RPs work well when: o They consider consequences, not causes taking an all risks approach ; o All agencies involved understand the importance of working in partnership, building strong personal relationships between the leaders and managers who make up the RP; o They bear in mind the importance of adaptability and flexibility effective response is about getting the right people from the right agencies to engage, share information and effect the most appropriate response; o The agencies take an integrated approach supporting each other (and the SCG itself) during an incident; o They are able to provide direction acting as advocates for resilience and ensuring that those involved in both planning & response have sufficient levels of authority to deliver the resource necessary from their agency to make progress. Those responsible for directing the response of national agencies in the area must coordinate any response to significant incidents with the agency, to ensure consistency and access to further support if required. o Subsidiarity is coupled with effective escalation arrangements. Control of operations should be at the lowest practical level. Co-ordination should be at the highest level required. Should an emergency develop in scale or severity escalation arrangements must be in place to adapt the response to an appropriate level; o They communicate effectively both between agencies to share situational awareness and guide the most effective response and with the public by providing information to warn, inform and reassure - through appropriate channels. 3

4 Core Roles and Responsibilities 10. It can be seen from above that much of what we currently do will not change. The RP areas are new but each of them will be built from 2 or 3 SCGs whose work on emergency preparedness and response is advanced. It is likely that some LRG areas will be based on existing SCG areas or on existing sub SCG working group areas. In these situations there will be good existing knowledge of key risks, capabilities and operational arrangements. The statutory duties contained in the 2004 Act continue to apply to the Category 1 and 2 responder organisations. The duty to collaborate on a multi-agency basis will be applied to the new Resilience Partnerships). Experience since the inception of SCGs tells us that we must maintain strategic response mechanisms that can be activated to support front line responders (and the first line of tactical co-ordination) where required but that, in the majority of incidents, successful management is effected through a flexible application of arrangements at the local level, involving the right people sharing the right information. There is no desire to change that, but there opportunities to improve how we work, cut down on duplication where processes can be applied to a larger area and to think more flexibly about how resilience is delivered locally through the LRG. 11. The move to 3 RP areas will require SCGs to work together in relevant groupings to make the transition as smooth as possible. We would expect these groupings to work together (initially at SCG Co-ordinator/Regional Resilience Adviser level, but then engaging at full strategic level) to: o scope out the work required to deliver an effective transition; o consider how response capabilities will be maintained throughout the transition; o agree the most suitable breakdown of LRG areas within the RP area and how LRGs will be configured and supported; o consider and decide at what level certain functions will be delivered within the RP (subject to the roles and responsibilities set out below). 12. The relevant groupings are: o North of Scotland Resilience Partnership (Highlands & Islands SCG, Grampian SCG, & Tayside SCG) o West of Scotland Resilience Partnership (Strathclyde SCG, Dumfries & Galloway SCG) o East of Scotland Resilience Partnership (Central SCG, Fife SCG, Lothian & Borders SCG) 13. A meeting of the main players involved in the East of Scotland Resilience Partnership has already been set for 11 January. Initial discussions and consideration has also commenced amongst the other 2 groupings. Ongoing joint work of this nature will be crucial - as it is principally a task for the SCGs and their member agencies to consider how best to manage the transition and to configure new arrangements that best meet the duties set out in legislation and doctrine. 14. Having said that, there are a number of core roles and responsibilities which, in the view of the Scottish Government, should be carried out at the same level across the country be that at the Resilience Partnership or Local Resilience Group level. Several duties (relating to plans and risk assessment) span both levels as aspects of them can be developed effectively by the full RP whereas other elements may require more localised detail. Similarly, duties relating to information sharing and communications may apply at the LRG level if an incident is being managed locally, or at the RP level if the issue is more wide ranging or national. The 2 lists overleaf aim to set out what, in our view, should be 4

5 managed at the RP level (first list) and the LRG level (second list). The overlap in these lists reflects the flexibility available to each RP in developing arrangements to meet local circumstances. Roles and Responsibilities at Resilience Partnership Level the RP should: i. Agree the Group s own membership, meeting arrangements, and terms of reference. Membership should continue to be at a strategic level, as per existing SCGs. Consideration will need to be given to: o Ensuring appropriate representation from all Category 1 & 2 responders, plus other groups playing a role in resilience (e.g. appropriate voluntary sector and/or business representation) o Appointing a chair/deputy for the RP who (supported by an SG funded coordination function) will lead meetings and ensure that a business plan and agreed programme of work is developed and delivered in partnership. o Determining the number of planning meetings per year (at least 2 will be mandatory, but RPs will need to consider what would be optimal). A higher number of meetings may be required initially to make progress on the transition); o Agreeing the location and format of meetings. As RP areas are larger than existing SCG areas consideration should be given to peripatetic meetings and/or the possibility of using video or teleconference facilities to ensure that all strategic members can be involved (especially in relation to incident response). ii. Agree the number of LRGs within the RP area, their boundaries & functions and how/to what extent each agency will resource each LRG. The RP will be expected to take the high level decisions required to enable the LRGs to function, as well as to oversee and ensure a degree of operational consistency across LRGs. iii. Develop clear alerting, activation, communication and information sharing protocols so that all agencies (including SGORR) are: o informed of likely disruptive events (e.g. weather warnings) the steps being taken to monitor the situation and preparations being made for action if necessary; o understand the circumstances in which the RP may stand-up ; o know how to activate the RP should that prove necessary; and o know how a CRIP will be developed and disseminated to ensure shared situational awareness during activations across the RP; iv. Develop a consolidated high-level risk assessment and capability analysis (including a concise community risk register for the RP area) drawing on RFC guidance and analysis made available nationally and information/assessments developed locally. This will initially draw on the material produced by existing SCGs but in the longer term LRGs will provide intelligence to refine assessments); v. Conduct a review of existing key emergency plans across the RP area to ensure that arrangements for key capabilities (e.g. generic incident response, mass fatalities, care for people, critical sites) are maintained throughout the transition and improved where possible. Agreeing agency leads for key areas of work if desired. This process will allow the RP to agree those capabilities/areas where single plans can be developed across the area, and those where planning will be fully or partially devolved to LRGs; vi. Develop a clear Resilience Communication Strategy which co-ordinates the resilience promotion activity of the RP in peace time whilst making clear how the RP s public communications group function will activate in support of the RP (or LRGs); vii. Develop (in liaison with the Scottish Resilience Development Service) an overarching training & exercising programme for the RP, based on consideration of national, regional and local needs. 5

6 Roles and Responsibilities at Local Resilience Group Level the LRG should: i. Agree (subject to any directions from the RP) the Group s membership, meeting arrangements, and terms of reference. A more localised membership is envisaged but this will need to remain sufficiently multi-agency to deliver the work of the group calling on appropriate representation to deliver key tasks. Key roles in the group will need to be agreed (Chair, Deputy etc) as well as frequency, format and location of planning meetings; ii. Develop clear alerting, activation, escalation & information sharing protocols so that all local agencies are: o informed of likely disruptive events, the steps being taken to monitor the situation and preparations being made for action if necessary; o aware of their role in the LRG if activated to deal with a response, know how to activate it and how to communicate during activations (e.g. using remote meetings); o able to contribute to a CRIP (or relevant local update) which will be disseminated to ensure shared situational awareness amongst local partners, the wider RP and SGORR during incidents; o aware of how to escalate the issue to other LRGs, the full RP and/or the national level if its extent or severity is increasing. iii. Develop any supporting local risk assessment and capability analysis required by the RP in order to provide assurance that risks and capabilities have been properly assessed in sufficient detail across the RP area. Consider whether there are any additional local risks that require management at the LRG level if so ensure assessments are in place and the RP is informed of the risks and plans; iv. Take forward activity to develop and deliver RP level plans and planning in the LRG area as directed by the RP. Consider whether there are any additional local (risk or site specific) plans that need to be maintained, developed and tested at the local level if so, ensure these are kept up to date and that the RP is aware of them; v. Develop arrangements to communicate local preparation and response activities to deliver effective local warning and informing and media communication. Ensure the vi. LRG knows how to activate the PCG (at RP level) if necessary; Support the delivery of the RP training and exercising programme within the LRG area, adopting to meet local needs as required; vii. Consider how best to develop business and community resilience in their areas through promoting the uptake of household/business resilience advice and the development of community emergency planning groups/activities. 15. The diagram below provides an illustration of how these roles and responsibilities may be split between RP and LRG levels (and between planning and response activity). A considerable degree of flexibility exists for the developing partnerships to shape these arrangements to best meet local circumstances. 6

7 RP LRG Response Preparation Set Activation Strategy Approve & maintain Core plans Membership, ToRs & Appointments Response to wide area and major Emergencies RFC Process Develop T&E strategy Business Plan Response to Local/lower level Emergencies Agree effective public comms, & information sharing arrangements Promote Community Develop resilience Escalation Strategy Assess Risk Business Plan Local training & exercising Review/develo p Local plans Membership, ToRs & Appointments Next Steps 16. This paper is intended to act as a basis for initial discussions and planning amongst the groupings of SCGs detailed at paragraph 12. There are significant opportunities at this stage of the transition process to consider how best to develop and implement future arrangements. Existing best practice can be highlighted and considered for adoption across Resilience Partnerships and Local Resilience Groups. There is scope to increase consistency and standardise elements of practice on the one hand alongside the possibility of developing more flexible arrangements in some areas on the other. This paper provides a common vocabulary and sets out some of the core responsibilities that will be required of both Resilience partnerships and Local Resilience Groups. In doing so it also illustrates the degree of flexibility for Category 1 and 2 responders to collectively develop arrangements that best meet the needs of each area and locality. That work will need to take place in each area if it is to deliver the best result. 17. Comments are invited on any aspect of this paper although it is a working document to be used by SCGs, co-ordinators and responder agencies as a basis for beginning to plan towards the transition. There will be opportunities for SCG Co-ordinators and RRAs to discuss it as part of a working group on the transition processes (which will meet for the first time in the New Year, drawing on SCG Co-ordinators and a number of members from the Future Resilience structures Working Group that was convened earlier this year). The next SCG Forum also takes place at the beginning of February. Work on co-ordination arrangements and resourcing for the Resilience Partnership areas is ongoing and will be discussed at forthcoming meetings. A Joint meeting of RABS and SCG Chairs has been set up for 8 March by which time a more developed transition plan (including both this paper and proposals on resourcing) will be discussed. Resilience Division December

8 8 Annex B

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