STATE FLOOD EMERGENCY PLAN

Transcription

1 p r e p a r e d b y t h e v i c t o r i a s t a t e e m e r g e n c y s e r v i c e STATE FLOOD EMERGENCY PLAN Safe F EBR U ARY

2 Version 2.0 (31 January 2012) This plan is produced by the Victoria State Emergency Service and is sub plan of the State Emergency Response Plan. The State Storm Emergency Plan contains the information relating to the management of storm events. The Plan is to be reviewed and updated (as necessary) every 3 years with the first revision in February Ensuring the information it contains is accurate and current would not be possible without the contributions and assistance of many people from the various organisations identified within its pages. Endorsed by the State Emergency Response Planning Committee on 31 January For matters regarding this plan: Chief Officer Operations Victoria State Emergency Service 168 Sturt Street, Southbank, Victoria, 3006 Phone: (03) Fax: (03) vicses@ses.vic.gov.au Website:

3 State Flood Emergency Emergency Flood Plan 1. Introduction 1 2. Purpose 1 3. Activation of Plan 1 4. The Flood Threat in Victoria 1 5. Planning Context 3 6. Victorian Flood Management Framework 3 7. Legislation and State Strategies 3 8. Agency Roles 4 9. Warning and Notification Services Weather and Flood Warning Products Severe Thunderstorm Warnings Severe Weather Warnings Flood Watches Flood Warnings VICSES Flood Bulletins Notifications Prevention and Preparedness Prevention Preparedness Community Education Flood Intelligence State, Regional and Municipal Flood Emergency Management Planning Structure Regional Flood Emergency Planning Municipal / Local Flood Planning Flash Flood Emergency Planning Guidelines Response Strategic Control Priorities Concept of Operations Special Legislative Provision for Response Arrangements for assistance Incident Management System Strategic Flood Response Management Control Centre Arrangements State Flood Control Team Response Arrangements Financial Arrangements Flood Intelligence Public Information and Warnings Rapid Impact Assessment (RIA) State Level Reporting Accountabilities Evacuation Evacuation Special Considerations Levee Environments Evacuation Special Considerations Isolated properties Evacuation Special Considerations Caravan Parks Medical Response Levee Management Management of Flooding Downstream of Dams Property Protection Flood Rescue Resupply Energy Community Infrastructure (Community and Commercial) Relief Aircraft Management Animal Welfare Recovery After Action Review 19 Appendices 20 Appendix 1 - List of Abbreviations 20 Appendix 2 - Glossary 21 Appendix 3 Agencies Involved in Flood Prevention, Response & Recovery 22 Appendix 4 Incident Management Structure for Large Events 31 Appendix 5 State Controller Aide Memoir Considerations for Major Event 32 Appendix 6 Flash Flood Emergency Planning Guideline 33

4 1. Introduction Victoria is exposed to flood risks from a variety of potential causes. In order to ensure the State of Victoria is appropriately prepared for emergency response to a flood event, Victoria State Emergency Service (VICSES) as the control agency for flood in partnership with support agencies and organisations shall work together to ensure all elements of preparedness, including planning for, response to and recovery from a flood emergency are effectively managed. The collective knowledge, capacity and resources of VICSES, support agencies and organisations shall integrate to ensure an effective and professional emergency management response for the community. In order to protect life, property and the environment it is necessary to have: An understanding of flood risks that the community faces Flood intelligence A program for prevention and mitigation of floods and their effects An informed, alert and prepared community Timely and accurate community warnings Identification of those responsible for controlling and coordinating the use of emergency management resources Clarity of support roles and responsibilities Co-operation between emergency services and others, and acceptance of their roles in emergency management Adequate resources with a coordinated approach to the use of those resources Arrangements to support and enable communities as they recover from emergencies Current tested and exercised plans at Regional and Municipal level An understanding of the potential health and medical impacts 2. Purpose The purpose of this plan is to provide strategic guidance for effective emergency response to a flood event in Victoria. The plan describes: The roles and responsibilities of agencies and organisations that have a role in planning for, responding to and recovering from a flood event The forecasting of meteorological events and dissemination of timely information to the community to minimise the threat and impact to people, property and the environment, as a result of a flood event The Victorian flood emergency planning structure that details the planning hierarchy and the elements that should be considered for planning at State, Regional and Municipal levels The strategic control priorities, the response management and co-ordination arrangements, and the management of flood response at the State level 3. Activation of Plan The State Flood Emergency Plan is active at all times and shall be implemented / executed as required for a flood event requiring any form of emergency activity. 4. The Flood Threat in Victoria Victoria has many flood prone communities. The effects of flooding on the community can include: Inundation of properties Damage to public infrastructure, public and private assets and property Short or long term displacement of people Isolation of properties or communities Disruption to essential services Death and injuries 1

5 Currently, floods (including flash flooding) cost Victorians an average of $465 million annually. Flood risk has been assessed by the State Emergency Mitigation Committee as the second highest risk (after bushfire) facing the state. An estimated 150,000 properties in Victoria have a 1% chance of being flooded in any one year. Many of these properties are prone to more frequent flooding, and there are thousands of additional properties susceptible to flooding less frequently. These figures do not include the substantial impacts upon essential infrastructure. There are 29 drainage basins across Victoria, with each hosting a series of rivers and streams. These rivers travel through and around many towns and cities, which have the potential to be impacted upon by flooding with serious consequences for the local community and the State economy. Major agricultural areas are also located on the floodplains of most major river systems in Victoria. Major flooding (riverine) in Victoria has occurred frequently in widespread areas of central Victoria, north-eastern Victoria and Gippsland, with a history of previous flooding along the Murray River and its tributaries. Major flooding has also occurred along the Yarra River (February 2005), Barwon River (1995) and Maribyrnong River (1974) all of which caused damage and major disruption. Whilst less frequent, there is also a history of significant flooding in catchments located in both northwestern and southwestern Victoria. Catchments in the northern plains area of northwest Victoria are particularly prone to significant flooding from relatively small rainfall totals once they have become saturated due to the prevailing soil types. From September 2010 to March 2011, Victoria experienced some of the worst floods in the state s history. The floods followed heavy rain across south eastern Australia, which began in August Over a series of flood events, the worst of which occurred in the months of September 2010, January and February 2011, approximately 70 local government areas experienced flood and storm damage. Along with the substantial impact to residential property and townships, significant loss, damage and isolation to rural properties and farms was experienced. Damage occurred to infrastructure including roads, public buildings and essential services. As at October 2011, the estimated gross total cost of these floods was approximately 1.3 billion dollars. Flash flooding has occurred with significant consequences in regional urban areas such as the Geelong, Ballarat, Bendigo and Traralgon, as well as across Melbourne, including the Yarra River precinct. It is generally accepted that climate change is real and not simply part of the natural climate cycle. While there is uncertainty about the impacts of climate change in Victoria, the resulting change in rainfall patterns is likely to lead to less frequent (but possibly larger) riverine floods and more frequent flash flooding events associated with localised storm activity. For more details regarding the history of flooding in Victoria see or There are a number of significant dams throughout Victoria that both store and provide water to communities across the State which have the potential to cause flooding in the event of failure. However, there are dam safety risk management processes in place and the possibility of dam failure is considered low but consequences could be catastrophic in some circumstances. 2

6 5. Planning Context The development of this emergency plan is based on a whole of government and community approach that recognises the interdependencies of prevention, response and recovery activities and that none of these activities are mutually exclusive. Community awareness and education are integral to effective response arrangements as response activities will be far more effective if the community has taken measures to minimise property damage and is aware of the inherent dangers associated with flood events. The community must also understand what actions they will take when warnings are issued. There are two aspects of flood management planning, Floodplain Risk Management Planning and Flood Emergency Planning. Floodplain Risk Management Planning is a subset of the community emergency risk management process focused on identifying and analysing flood risks: and evaluating and recommending appropriate flood risk treatment options. This is best achieved through a flood study, floodplain risk management study and a floodplain risk management plan to identify the flood risks and how these might be best managed. Flood Emergency Planning brings together the resources of many agencies and the community to take appropriate and timely action in relation to flood preparedness, response and recovery. The planning process is a treatment option for residual risk. It relies on crucial information derived from floodplain risk management planning to inform the strategies outlined within plans. 6. Victorian Flood Management Framework The successful response to flood in Victoria depends on strong relationships with key partners, each having responsibility for elements of overall flood management activities. Flood management depends on effective integration of planning, preparedness, prevention, response and recovery at state, regional and local levels. 7. Legislation and State Strategies The following legislation and state plans provide the basis for planning for response and recovery for flood events in Victoria: Emergency Management Act Victoria 1986 Flood is defined as an emergency under the Emergency Management Act 1986 (s. 4(a)) Emergency Management Manual Victoria (EMMV) Identifies VICSES as the Control Agency for flood and; DHS as the State Relief and Recovery Coordinator Victoria State Emergency Service Act 2005 Section 5(a) and (b) of the VICSES Act 2005 details VICSES role in flood planning and response Water Act 1989 Catchment and Land Protection Act 1994 Meteorological Act 1955 (Commonwealth) State Emergency Response Plan State Emergency Relief and Recovery Plan State Health Emergency Response Plan 3

7 8. Agency Roles Flood emergencies by their nature require a multi-agency response. Part 7 of the EMMV identifies VICSES as the control agency for Flood Response with DHS responsible for coordinating relief and recovery planning and management at State and Regional levels. The EMMV also identifies the BoM and DSE as key Support Agencies to VICSES. Appendix 3 of this plan identifies the agencies and organisations that support VICSES as part of an integrated response to flood events and their responsibilities in the context of flood management. 9. Warning and Notification Services Flood warnings and notifications are provided by the BoM, Melbourne Water and VICSES. It is the responsibility of the BoM to maintain the service level requirements as agreed to by the Victoria Flood Warning Consultative Committee. BoM act as the flood prediction agency for Victorian catchments with the exception of Melbourne Metropolitan catchments where Melbourne Water is the prediction agency. BoM formulate and issue official forecasts and warnings for: River basins (Flood Watches) Key locations on rivers and creeks (Flood Warnings) Land and coastal forecast districts (Severe Weather and Severe Thunderstorm Warnings) The BoM in NSW formulate flood predictions for the Murray River downstream of Lake Hume. Melbourne Water acts as the flood prediction agency for larger Melbourne Metropolitan catchments (Yarra, Maribyrnong, Westernport, Dandenong Creek, Werribee, Diamond Creek, Merry Creek, Kororoit Creek and Plenty River). It operates a flood-warning network on major rivers and creeks and provides flood forecasts to the BoM who disseminate official forecasts and warnings for key locations on rivers and creeks (Flood Warnings). VICSES provides warnings and emergency information to the community through releasing Flood Bulletins. Flood Bulletins are informed by information supplied by BoM and Melbourne Water. 9.1 Weather and Flood Warning Products Severe Thunderstorm Warnings In relation to flash flooding, these warnings are issued when severe thunderstorms are likely to develop, or extend into a specified area over the next few hours. The warnings are issued for specific areas in the state but are available statewide. In the Melbourne area a more detailed warning is issued. These warnings depict and describe individual severe thunderstorms and their forecasted paths Severe Weather Warnings Severe Weather Warnings aim to provide advance notice of very heavy rainfall leading to flash flooding or storm surge, which is sometimes exacerbated by abnormally high tides. They are issued when severe weather is expected to affect land-based communities within the next 24 hours; and Is not directly the result of severe thunderstorms and; Is not covered by tropical cyclone or fire weather warnings 4

8 9.1.3 Flood Watches Flood Watches are issued for specific regions (e.g. East Gippsland or North East Victoria) and advise that a flood is possible in those regions. They are issued 24 to 36 hours in advance of any likely flooding and updated as required. If at any time during this period there is an imminent threat of a flood occurring, the Flood Watch is upgraded to a Flood Warning Flood Warnings Flood Warnings are firm predictions of flooding based on: Actual rainfall measurements Stream flow based models of catchment behaviour; and Likely future rainfall They are issued for specific rivers when flooding is imminent or is already occurring. Flood Warnings provide predictions of flood severity (minor, moderate and major) and the estimations of rise, fall or peak at forecast locations (river gauges). Flood warning predictions are upgraded and downgraded as a flood rises, peaks and falls. Any series of Flood Warnings are finalised when floods reach levels below the minor flood classification VICSES Flood Bulletins Flood Watches and Warnings, Severe Weather Warnings and Storm Warnings do not provide detailed descriptions of potential flood consequences. They provide only generic public safety advice. VICSES valueadds to Flood Warnings and Watches through VICSES Flood Bulletins by providing a description of possible flood consequences and specific localised public safety advice actions. Flood Bulletins are distributed to the community through the media and VICSES website. Flood Bulletins are also distributed to other Emergency Services Organisations. 9.2 Notifications BoM publishes all Flood Watches, Flood Warnings, Severe Weather and Thunderstorm Warnings on the BoM website and provides them to pre identified agencies, organisations, and media outlets. Information regarding public information is contained in section The BoM will fax and/or warning messages to VICSES at State and Regional Level. Upon the receipt of a warning, VICSES has the responsibility to disseminate notifications and advice to the emergency services, affected communities and key support organisations at State, Regional and/or Area of Operations and Local levels. If the warning specifically describes a serious and imminent threat, based on the advice from the BoM, the VICSES State Duty Officer (SDO) will notify all Emergency Service Organisations (ESOs), including ESTA and the State Emergency Response Officer (SERO), via the State Emergency Management Team (SEMT) and relevant agency SDOs. Regional Duty Officers (RDO) will notify all relevant agency duty officers. 5

9 Following the issuing of any warning product, VICSES will maintain regular contact with the BoM and/or Melbourne Water until the flood risk has passed. Where local information indicates the need for river height predictions to be adjusted VICSES shall advise the BoM / Melbourne Water without delay so adjustments may be issued if appropriate. VICSES has developed a detailed notification process for severe weather events, which is documented in the VICSES Standard Operating Procedures. 10. Prevention and Preparedness 10.1 Prevention DSE is responsible for policy and oversight of floodplain risk management arrangements. This function is carried out by Catchment Management Authorities (CMAs) in regional Victoria and Melbourne Water in the Port Phillip and Westernport catchments. Local government has a significant role to play in the administration of land use planning arrangements and accountability for flood mitigation at the local level. Prevention activities cover both structural and non-structural measures. Structural measures have traditionally included flood mitigation works, such as levees, retarding basins, channel modifications and the flood proofing of dwellings. Non-structural measures include land use zoning and building restrictions. There are many levee systems within Victoria. Levee managers are responsible for maintaining levee systems and providing VICSES and floodplain management agencies with information about their operation Preparedness Preparedness activities will focus on the development of sound planning at the strategic and operational levels. Activities include the development of multi-agency integrated plans at the State, Regional and Municipal level. Plans recognise the responsibilities that emergency management agencies, local governments, essential services, other government agencies have to their customers and the broader community. Preparedness activities should include the regular conduct of exercises to test preparedness and flood emergency plans Community Education VICSES actively partners with CMA s, Local Government, the community, water authorities and other Government Departments and institutions in the delivery of its FloodSafe programs. These programs are designed to provide awareness and education for community members about flood risk and flood preparedness Flood Intelligence The existence of flood intelligence will enable the VICSES to determine, based upon flood warning predictions, the likely impacts of flooding, what actions will need to be taken by response agencies and what information and advice should be provided to community members. VICSES will work closely with CMAs and DSE to ensure available sources of flood intelligence are utilised. Flood Emergency Plans will contain available flood intelligence. Private flood consultants will be engaged to provide flood intelligence as required. 6

10 State, Regional and Municipal Flood Emergency Management Planning Structure Flood emergency planning occurs at the State, Regional and Municipal level under the auspices of key forums and committees, formed under the Victorian emergency management arrangements. Plans recognise the responsibilities that emergency management agencies, floodplain managers and water authorities have to their customers and to the broader community. Preparedness activities should include the regular conduct of exercises to test emergency plans. Best practice guidance on flood emergency planning can be found in the Australian Emergency Management Manuals, Flood Series, available online at Figure 1 shows the planning structure in Victoria. State Flood Emergency Planning State Flood Policy Committee(DSE) Strategic objectives Agency roles Planning framework Strategic Incident Management Command and Control State Emergency Response Planning Committee (VICPOL) State Emergency Recovery Planning Committee (DHS) State Emergency Relief Planning Comittee (DHS) Regional Flood Emergency Planning Coordination and linkages to Municipal Flood Emergency plans Coordination and linkages of adjoining regional plans Incident Management Command and Control Regional Emergency Response Planning (VICPOL) Regional Relief and Recovery Planning Committee (DHS) State Storm Emergency Planning Municipal Flood Emergency Planning Coordination and linkages of local response plans Incident Management, Response and Recovery Linkages with floodplain management plans Municipal Emergency Management Plan Municipal Relief and Recovery Planning Figure 1 - State, Regional and Municipal Flood Response Planning Structure Flood Emergency Plans are to be sub-plans to the existing all hazards, all agencies Emergency Management Plans at Municipal, Regional and State levels (i.e. State Emergency Response Plan, Regional Emergency Response Plan and Municipal Emergency Management Plans). Flood Emergency Plans should not duplicate existing arrangements but add value to these in the context of flooding. All Flood Emergency Plans should be reviewed at least every three years or under the following circumstances: New flood risk information derived from the Floodplain Risk Management Process becomes available Implementation of new structural flood mitigation works After major floods and exercises 7

11 Regional Flood Emergency Planning Drainage basins in Victoria are managed through the following organisations: Corangamite CMA East Gippsland CMA Glenelg Hopkins CMA Goulburn Broken CMA Mallee CMA North Central CMA North East CMA Melbourne Water West Gippsland CMA Wimmera CMA Any widespread flooding is likely to transcend emergency management and other jurisdictional boundaries; to ensure the inclusion of floodplain management into emergency planning across each catchment management basin Regional Flood Emergency planning will be based on Victorian Government regions. Where a flood extends or originates from the Murray River on the Victorian border, response protocols will be in accordance with the VICSES and NSW SES MOU. Where a flood has cross-border consequences in South Australia and Victoria, liaison with SA SES will occur. Each VICSES Region will have a Flood Emergency Plan that includes the identification of suitable Regional and/or Area of Operations Control Centre locations. The Regional and/or Area of Operations Control Centre shall have appropriate facilities to accommodate a multi-agency Emergency Management Team (EMT). The location of the Regional and/or Area of Operations Control Centre should allow for contingencies and provide flexibility to deal with access limitations during major floods. Regional Flood Emergency Plans will focus on strategic resource coordination within catchment areas and across the relevant Regional boundary. Regional Flood Emergency Plans should ensure that consideration is given to, but not limited to: Regional risk assessment Locations of significant flood mitigation works of regional importance and their management Locations of significant essential infrastructure of regional importance Locations of Division Command, and Incident and Regional Control Centres Location of key strategic resources such as incident management personnel, flood boats, aircraft and sandbags Traffic management plans for major arterial roads Arrangements for regional resource coordination and support Identification of significant evacuation scenarios Operation and role of Regional EMTs Areas where other agencies may provide first response flood capability Communication Cross boundary arrangements (intra and inter state) Warnings and community information 8

12 Municipal / Local Flood Planning Each Municipality with a significant flood risk as identified in the Community Emergency Risk Assessment process or Floodplain Risk Management process should have a Municipal Flood Emergency Plan (MFEP). VICSES has developed a MFEP template to assist the development of MFEPs and is available from Plans should be developed within Municipal boundaries and outline preparedness, response, emergency relief and recovery arrangements for communities at-risk of flooding. A sub-committee of the MEMPC consisting of key stakeholders such as VICSES, Council, CMAs, Water Authorities, VICPOL and community groups may be established to develop the plan. Collaboration and cross boundary planning should be undertaken where appropriate. VICSES will take a leadership role in the development of these plans in high-risk areas. Municipal Flood Emergency Planning activities including the development of MFEPs should consider the following: Flood risk assessments, for all types of possible flood events (available flood intelligence) Flood monitoring data (data collection) Existing flood mitigation measures and their management Disruption to essential services and community infrastructure Reference to relevant dam safety emergency plans Property protection arrangements Community Education Flood warning and community information Media Communication Traffic management Flood Warden and local community intelligence arrangements Municipal and community resources Cross boundary arrangements Identification of Sectors and Divisions Location of Incident Control Centres, Divisional Command facilities and key venues to support management of the incident Role of EMTs Evacuation arrangements including those for dam failure scenarios Planned Relief Centres and Staging Areas Rapid impact assessments Resupply arrangements Areas where other agencies may provide first response flood capability Rescue arrangements and; Relief and recovery transition and coordination (including cleanup) Flash Flood Emergency Planning Guidelines The flash flood hazard has special considerations for emergency planning. Appendix 6 provides a guideline for Flash Flood Emergency Planning. 9

13 11. Response Flood emergency operations will be managed as per the Emergency Management Manual Victoria, Part 3 State Emergency Response Plan Strategic Control Priorities To provide guidance to the Incident Management Team (IMT), the following strategic control priorities shall form the basis of incident action planning processes: 1. Protection and preservation of life is paramount, this includes: Safety of emergency services personnel Safety of community members including vulnerable community members and visitors/tourists located within the incident area Safety and welfare of displaced community members 2. Issuing of community information and warnings 3. Protection of community essential infrastructure and essential services that support community resilience 4. Protection of residential property as a place of primary residence 5. Protection of assets supporting economic production and individual livelihoods 6. Protection of environmental and conservation values 7. Effective transition to recovery Circumstances may arise where the Incident Controller is required to vary these priorities. This shall be done in consultation with the State Flood Controller and relevant stakeholders based on sound incident predictions and risk assessments. An Aide Memoir of considerations for the State Flood Controller in response to a major flood is provided at Appendix Concept of Operations VICSES will assume overall control of the response to flood incidents. Other agencies will be requested to support operations as detailed in this Plan. Control and coordination of a flood incident shall be carried out at the lowest effective level and in accordance with the State Emergency Response Plan (EMMV Part 3). During significant events, VICSES will conduct incident management using multi-agency resources Special Legislative Provision for Response There are Special Legislative Provisions for Response that provide guidance for declarations to be made given the size, nature and location of an emergency that could be called upon to support the State Flood Plan arrangements. These can be found in part 3 of the EMMV and part 5 of the Emergency Management Act 1986 (as amended) and include: State of Disaster Emergency of State Significance Emergency Area 11.4 Arrangements for assistance The procedures for obtaining additional resources are to be undertaken in accordance with the State Emergency Response Plan (EMMV Part 3). 10

14 11.5 Incident Management System VICSES is committed to conducting flood emergency operations at the State, Regional / Area of Operations and Incident tier in accordance with an Incident Management System (IMS). The use of an IMS will ensure that all agencies and relevant organisations are able to contribute to response activities in an integrated structure that encourages and supports the contribution of critical information and advice. Appropriately trained, skilled and endorsed VICSES personnel, or other personnel as approved by the VICSES Chief Officer Operations, shall be Incident Controllers for flood events in Victoria. The Incident Controller will ensure the incident is managed in accordance with the six strategic control priorities and the knowledge and expertise of all agencies and relevant stakeholders is considered and integrated where possible. Community engagement through the accurate, timely and relevant dissemination of information and warnings to affected communities is a critical element of effective incident management. The Incident Controller shall ensure that recovery arrangements are considered in all aspects of incident management and Incident Action Planning. The expanded Incident Management Structure is detailed in Appendix Strategic Flood Response Management The Incident Controller is responsible to establish and maintain a management structure as required by the scope and potential of the event and to ensure all key agencies, organisations and key stakeholders have the opportunity for appropriate representation and or input to the incident management processes. The Incident Controller shall form an IMT utilising key agencies to fulfil roles as appropriate. State Control/Coordination Regional/Area of Operations Control/Coordination Incident Control State Emergency Management Team Regional / Area of Operations Emergency Management Team Local Government To support the IMT the Incident Controller shall convene an EMT as per Part 3 of the EMMV. The EMT should include key agencies with significant roles, e.g. VicRoads, and representatives from the Power Sector and Water Authorities. These are agencies that need to be informed of strategic issues related to incident control, and who are able to provide strategic and policy advice to the Incident Controller for consideration in developing incident management strategies. Figure 2 right details the Control structures between the State, Area of Operations and Local levels. Incident Management Team Incident Strategy Community Emergency Management Team Incident Control Established by legislation, the Incident Controller is the individual with overall responsibility for emergency response operations Incident Management Team Set objectives and strategies Consequence Management Responsible for Control Completes risk assessments Coordination Emergency Response Coordinator Coordination of resources Emergency Management Team Assist Control agency achieve objectives Provide expert advice and assistance Broader scope consequence management Sets interagency understanding of situation, objectives, strategies Expedites situational awareness Figure 2 Emergency Management Interdependencies 11

15 11.7 Control Centre Arrangements State Level. The State Flood Controller will lead significant flood emergency operations from the State Control Centre. This will ensure a Whole of Government approach to integrated response and strategic information management for major flood events. Regional Level. Area of Operations / Regional control should be conducted from the most appropriate facility to ensure that regional Whole of Government integrated response and information management when major flooding occurs. Local Level. Local incident control shall be conducted from predetermined Incident Control Centres (ICCs). These should be in flood free areas with available access during all flood magnitudes. These should be located as close to the flood incident as practical to ensure control is exercised at the lowest effective level and takes account of local experience and knowledge State Flood Control Team The State Flood Control Team is a forum to support the State Controller in developing a strategic approach to preparation and response. The State Controller will assemble a State Flood Control Team comprising: State Controller VICSES State Commander State Emergency Response Coordinator (or delegate) State Emergency Recovery Coordinator (or delegate) and State Control Team Executive Officer Other roles and agencies maybe invited to participate as required Response Arrangements VICSES shall command its own agency resources at the state level and work directly with key support agencies, such as CFA, DSE, MFB, AV, Power Companies and Councils for resource requirements. The coordination of other state level resources shall be managed by the State Emergency Response Coordinator who may, in consultation with the State Controller, arrange for activation of the State Emergency Support Centre (SESC). The State Emergency Response Coordinator shall undertake functions as defined in Part 3 of the EMMV Financial Arrangements Costs associated with the provision of services and resources to manage the emergency shall be in accordance with the EMMV Part 8, Appendix 1 - Financial Arrangements Flood Intelligence The Intelligence Unit shall use available sources of flood information, including relevant studies and mapping and established networks such as CMA s, Local Government, Flood Wardens and local observers to provide information on possible predicted flood consequences to inform public information and response actions. For high impact weather events the BoM shall provide a meteorologist at the State Control Centre (SCC) to provide weather briefings including ongoing liaison and state teleconferences as required. When staffed, the SCC meteorologist shall be the primary contact of weather information from the BoM. DSE and CMA s in partnership with VICSES, and Municipalities shall coordinate the collection, collation, analysis, interpretation and dissemination of post-flood extent and survey levels, and ensure that relevant information is available through the rapid impact assessment process. 12

16 11.12 Public Information and Warnings As detailed in Section 9 of this plan, VICSES acknowledge that public information and warnings are a key operational priority to ensure timely community preparedness can occur. Principles applied in the provision of public information and warnings shall be consistent with the concepts outlined in the Total Flood Warning System (see Australian Emergency Manual 21) and the Victoria Emergency Warning Protocol. VICSES shall provide the community with information regarding the BoM flood predictions, current flood situation, likely future flood consequences, and actions required to protect life and property, how to access further information about flooding and how to obtain emergency assistance. Where possible local input will be sought to inform messages to the community. Warnings are also provided via the media and the use of ABC, commercial and community broadcasters (as per standing agreements with emergency broadcasters). VicRoads shall coordinate information regarding the closure of roads and will communicate this to VICSES and the community. Department of Health (Health & Human Services Emergency Management) shall coordinate information regarding public health and safety precautions. Dependent upon the timing of the threat and potential consequences, VICSES shall consider use of: The VICSES Flood and Storm Information Line (1300 VICSES / ), hosted by the DSE Customer Service Centre for provision of public information The Emergency Management Joint Public Information Committee (EMJPIC) through the EMJPIC Chair as per Appendix 12, Part 8 of the EMMV Flood update information and community emergency warnings may be disseminated through emergency broadcasters including ABC radio, Sky Channel, commercial media and community media outlets in accordance with the agreed State MOU Other methods of dissemination may include the following: Doorknocking (only when safe to do so) Mobile and Fixed Public Address Systems / sirens Telephone and fax Two-way radio Variable Message Signs Internet via BoM website and SES website Standard Emergency Warning Signal (SEWS) as per Appendix 14 Part 8 of EMMV Emergency Alert may be considered to warn affected communities (templates are embedded into the Emergency Alert application) Local Council telephone based warning systems Community meetings Community flood wardens The use of social media such as facebook and twitter 13

17 11.13 Rapid Impact Assessment (RIA) Immediately after a flood incident has affected an area or community, there is a need to ascertain what the impact has been particularly in relation to people (casualties, injuries and displacement), property (residences, businesses) and essential community infrastructure (roads, bridges, water, sewage, power, telecommunications). This assessment can inform response and relief agencies to respond effectively to protect life, property and the environment and return the community to normality as soon as possible. Assessment of the impact is a vital component of the planning (situational awareness) and implementation of the response Incident Action Plans (IAP s) and recovery from an emergency incident. Assessments provide the information on which the response and recovery can be designed and adapted. Information collected may be derived from several sources, for instance multiple agency Incident Management Systems (IMS) may be used for smaller type events, whilst large events may require the use of dedicated Rapid Impact Assessment teams (located within ICC s and the SCC to collate collected data). Dedicated Rapid Impact Assessment Teams may be established in the field collecting, verifying and disseminating information. VICPOL is responsible for coordinating the collection, collation and dissemination of Rapid Impact Assessment information on a whole-of government basis. The Incident Controller is responsible for activating VICPOL to undertake this function State Level Reporting Accountabilities The State Flood Controller shall ensure that consistent information is provided to the State Emergency Response Co-ordinator. The State Emergency Response Coordinator is responsible for providing information to the Minister for Police and Emergency Services in accordance with section 6 of the Emergency Management Act. All supporting agencies are to provide situation reports to the relevant Incident Controller Evacuation Evacuation is a risk management strategy, which may be used as a means of mitigating the effects of an emergency or disaster on a community. It involves the movement of people to a safer location. However, to be effective it must be correctly planned and executed. In Victoria, evacuation is largely voluntary. The Incident Controller makes a recommendation to evacuate and it is the choice of individuals as to how they respond to this recommendation. However in particular circumstances legislation provides some emergency service personnel with authority to remove people from areas or prohibit their entry e.g. Emergency Management Act 1986 (sections 24 & 36A) and Coroners Act 2008 (sections 37(2), 37(3) & 38(1)). There are five stages in the evacuation process: decision, warning, withdrawal, shelter and return. 14

18 Decision - the decision to recommend that people evacuate shall be made by the Incident Controller in consultation with VICPOL, DHS, AV, local government and other expert advice (e.g. CMAs, infrastructure providers, dam managers or specialist flood consultants), unless time constraints prevent this consultation. Generally under circumstances when life and safety are at risk, evacuation should be considered. Specific circumstances in which evacuation may be considered include: Homes or businesses are likely to flood Residents are unsuited to living in isolated circumstances due to flood water closing access Essential utility services have failed (or are likely to fail) and will result in impact to human health Buildings have been made uninhabitable Warning or recommendation - messages to the community will be either a warning to affected people that they prepare to evacuate or a recommendation that they evacuate immediately. The Incident Controller is responsible for authorising and issuing such messages to the community. Where authorisation from the Incident Controller is not practicable and an extreme and imminent threat to life may exist, an evacuation message can be issued by any response agency personnel. Withdrawal - is the removal of people from a dangerous or potentially dangerous area to a safer area. The Victoria Police Evacuation Manager is responsible for managing the withdrawal, which includes developing an evacuation plan which clearly identifies activities and timelines as well as roles and responsibilities of any agencies involved. The Victoria Police Evacuation Manager may authorise the release of messages regarding withdrawal to the community in consultation with the Incident Controller. Shelter - Emergency shelter provides for the temporary respite of evacuees. It may be limited in facilities, but should provide security and personal safety, protection from the climate and enhanced resistance to ill health and disease. Municipal councils are responsible for the provision of emergency shelter and for managing Emergency Relief Centres, which should be clearly identified in local emergency management plans and communicated to the public when required. The Incident Controller is responsible for activating emergency relief services. Return is the final stage of the evacuation process involves the return of people to the place from which they were evacuated. The Incident Controller makes the decision to advise people that they can return to the affected area in consultation with police and other relevant agencies. The Incident Controller makes the decision to advise people that they can return to the affected area in consultation with police and other relevant agencies. In the case of longer term evacuations where an Incident Control Centre is no longer activated, this decision may be made by the Victoria Police Evacuation Manager in consultation with relevant agencies. Evacuation operations should be consistent with Evacuation Guidelines, Appendix 9 of the EMMV Evacuation Special Considerations Levee Environments Levees are flood mitigation structures which aim to reduce flood frequency by creating a barrier between floodwaters and elements at-risk. Levees have been used across Victoria in an attempt to reduce flood damages and enhance public safety. All levees, however, unless designed for Probable Maximum Flood events, will ultimately be over-topped by events larger then their design events, or possibly fail through lack of maintenance, inadequate construction or unforeseen circumstances. Since the performance of a levee cannot be assured after its design height or design specifications are exceeded, the design height or design specifications should be used as the trigger for evacuation when a levee is in danger of over-topping. 15

19 Augmentation of levees through temporary means (e.g. sandbagging) cannot be considered as alternatives to evacuation. Such works should be considered only as attempts to protect property and consideration must still be given to evacuating at-risk residents. Such works should also be undertaken only after technical advice is sought regarding their potential consequences on flooding and authority to undertake the proposed works. Levees may be in danger of failure due to breaching and therefore must be carefully monitored to ensure any signs of piping or seepage are identified. Where such observations are made or there are concerns about the structural integrity of a levee, evacuation of the protected community should be considered. Specialist geo-technical advice may be sought regarding the stabilisation of a deteriorating levee. However, evacuation should occur and continue until a levees integrity can be assessed as safe. Levee owners/managers should be consulted to provide expert advice as to the design and operation of their levee systems. Incident Controllers should always consider that no levee is flood-proof and that levees are primarily a mechanism for the protection of property, not life. Where there is potential for levee over-topping or a levee breach, evacuation must be considered Evacuation Special Considerations Isolated properties The isolation of people is not without risk. Where it is viewed that people are unsuitable to remain in a property that may become isolated based upon predicted flood heights, they should be encouraged to evacuate. Such people may include: Unprepared property owners People dependent upon medical care Families with young children People who are immobile People who suffer from physical disabilities People who suffer from health conditions that are likely to be exacerbated through either direct exposure or stress caused as a consequence of flooding People who are frail Evacuation Special Considerations Caravan Parks Many caravan parks are located in flood prone areas. Caravans may float away and suffer severe structural damage during floods. It is very dangerous for people to remain in caravans or cabins during floods. When evacuating a caravan park the following must be considered: Caravan park residents need to be notified of the need to evacuate Caravan park managers should coordinate the movement of moveable vans Additional transport may be required to assist caravan park managers to relocate moveable vans A site needs to be established to accommodate moveable vans. Such a site should have power and amenities which would allow people to continue to live in their caravans if appropriate Occupiers of non-moveable vans will be advised to: Secure their vans by tying them down to prevent flotation Isolate power to their vans Move to a designated Emergency Relief Centre The caravan park manager should keep a register of residents that have evacuated from the caravan park and notify the lead agency when the evacuation of the caravan park has been completed 16

20 11.16 Medical Response The response to a significant flood will require a coordinated medical response to undertake the following: Continue responding to emergency medical calls via 000 in the altered environment Relocation/evacuation of threatened health and aged care facilities Treat sick and injured people, including the provision of pre-hospital care and transport by Ambulance Victoria Provide and coordinate immediate mental health support to persons both directly and indirectly affected through DH Assess public health risks Provide environmental health advice In accordance with the SHERP, the Health Commander(s) will coordinate the health response in consultation with the relevant Incident Controller(s). In response to mass fatalities, Victoria Police and the Coroners Court of Victoria will administer the handling and investigation of deceased persons and their subsequent removal as defined in the EMMV Levee Management Levee owners / operators are responsible for the maintenance and operation of levees. Monitoring of a levee is the responsibility of levee owners / operators. Levee owners / operators must keep the Incident Controller informed of the levees status and be prepared to provide expert advice to the Incident Controller about the design and construction of their levee. In accordance with the State Control Priorities, the Incident Controller may assist levee owners to coordinate resources, both technical and physical, to provide advice and affect temporary repairs or augmentation to levees Management of Flooding Downstream of Dams VICSES is currently working with the Department of Sustainability and Environment to finalise arrangements for the management of flooding downstream of dams Property Protection VICSES is the responsible agency for the control of operations to protect property from floods. Property may be protected by: Sandbagging to minimise entry of water into buildings Encouraging businesses and households to lift or move contents Construction of temporary levees in consultation with the CMA, LGA and VICPOL and within appropriate approval frameworks. The Incident Controller shall determine the priorities related to the use of sandbags, which shall be consistent with the strategic priorities and VICSES Sandbag Policy. If sandbags are becoming limited in supply, then priority will be given to protection of essential and key community infrastructure and heritage assets. 17