London Resilience Partnership London Structural Collapse Response and Recovery Framework

Transcription

1 London Resilience Partnership London Structural Collapse Response and Recovery Framework VERSION 1.0 APRIL 2012

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3 CONTENTS SECTION 1 INTRODUCTION 1.1 Introduction 1.2 Objectives of this plan 1.3 Aim of the London Structural Collapse Response and Recovery Framework 1.4 Audience 1.5 Plan ownership, authorisation and administration 1.6 Audit and amendments 1.7 Publication and Distribution 1.8 Data Protection SECTION 2 STRATEGY 2.1 Notification Process 2.2 Strategy 2.3 Meeting the cost of Structural Collapse Response and Recovery 2.4 Public Information 2.5 Handling and Controlling Donations SECTION 3 RECOVERY KEY PHASES IN STRUCTURAL COLLAPSE RESPONSE AND 3.1 Phase 1 Emergency Response 3.2 Phase 2 Site Investigation 3.3 Handling Bodies 3.4 Phase 3 Site Stabilisation 3.5 Phase 4 Site Clearance 3.6 Personal Items and sensitive business documents 3.7 Decontamination options for a Chemical, Biological, Radiological or Nuclear Incident 3.8 Recovered Materials 3.9 Transport of Debris 3.10 Phase 5 - Disposal of Debris SECTION 4 ROLES AND RESPONSIBILITIES STRUCTURAL COLLAPSE RESPONSE AND RECOVERY 4.1 Site/Building Owner 4.2 Local Authorities 4.3 Environment Agency 4.4 Health and safety Executive 4.5 Police Services 4.6 London Fire Brigade 4.7 London Ambulance Service 4.8 Military Assistance 4.9 Voluntary Agencies 4.10 Utility Companies 4.11 Health Protection Agency London Structural Collapse Response and Recovery Framework Page 3 of 45

4 SECTION 5 COMMUNICATION 5.1 London Prepared Website 5.2 The London Media Emergency Plan SECTION 6 QUESTIONS, COMMENTS OR AMENDMENTS Non Restricted Appendices Appendix A - Legislation and Regulation Appendix B - Further information and publications Appendix C Incident Response Flow Chart Appendix D Glossary of key terms Appendix E List of abbreviations Appendix F Guidance on selection of contractors Restricted Appendices Appendix G Operational Plan Appendix H LFB USAR Guidelines Appendix I LAS HART Team Guidelines Appendix J MPS FEER Plan London Structural Collapse Response and Recovery Framework Page 4 of 45

5 SECTION 1 INTRODUCTION 1.1 INTRODUCTION In Britain, incidents requiring site clearance have been relatively small when compared with events such as the attacks on the World Trade Centre in New York (2001) or the devastation caused by the South East Asian Tsunami (2004) or Hurricane Katrina (2005). However, these disruptive challenges highlight a need for effective planning and preparation. London s authorities manage structural collapse incidents on a daily basis, without recourse to implementing a plan of this scope and nature. This framework provides good practice guidance for responding to an extreme incident, of the scale or similar to the World Trade Centre attack of 2001, and one which has incurred mass loss of life. Many different skills and disciplines are brought to bear on such an incident, and cooperation and collaboration are central to the success of that response. It is essential that this is read in conjunction with The London Mass Fatality Plan which outlines the scaleable response to a Disaster Victim Identification scenario. The decision to scale up and fund an incident of this magnitude will ultimately lie with Central Government via COBR which will be filtered down for action via the Strategic Co-ordination Group (SCG). This is particularly pertinent as it is likely that the eyes of the world will be on such an incident in terms of the Humanitarian response and effective investigation into the cause of the incident. It is impossible to be wholly prescriptive in advance as to who is responsible for funding the shifting phases where primacy between responding agencies often changes. For example there is often lack of clarity around ownership, for the purpose of funding, regarding the Disaster Victim Identification Process, as to whether this owned by the Police or the Coroner, particularly where there is crossover into securing forensic evidence to investigate the cause of the incident. The Strategic Co-ordination Group (SCG) will make appropriate dynamic, documented decisions in relation to this in the aftermath of such an incident, dividing up funding responsibility proportionately according to the nature and scope of the incident. This document has been prepared to inform and guide those with key roles in planning for, and responding to, incidents involving structural collapse requiring the exercise of a site clearance capability regardless of cause. It reflects the current legislative framework and brings together information on good practice in site clearance planning and response following a structural collapse. Site clearance does not begin when the incident is over. Strategic discussion on site clearance should start at a very early stage of the response to a structural collapse when knowledge of the nature and potential extent of any contamination may not be available. Activities following structural collapse can range from immediate support directed at specific elements of the emergency response (e.g. saving of life, forensic recovery), targeted operational support for the restoration of essential services, through to full scale demolition and clearance of the site in order to assist with a return to normality. London Structural Collapse Response and Recovery Framework Page 5 of 45

6 1.2 OBJECTIVES OF THIS PLAN The objective of this document is to provide guidance on responding to and recovering from a structural collapse in London that will: inform effective responses to structural collapse encourage key responders, both individually and collectively to develop doctrine and tactics that will achieve effective response, co-ordination and recovery; identify an effective management framework and help clarify organisational roles and responsibilities; encourage the provision of consistent training, exercising and sharing of learning experiences to enhance skills and competencies at local and national levels; identify the strategic linkages following a structural collapse to other related activities during the response, recovery and post-recovery phases; identify some of the likely operational, contractual and regulatory issues to be addressed in developing a response strategy provide guidance on services and contractual arrangements to assist in achieving best practice decontamination of the built and open environment; to help identify potential capability gaps in London and make recommendations for rectifying these issues, such as the development of mutual aid and partnership arrangements clarify funding arrangements in respect of an incident requiring site clearance in London following a structural collapse. 1.3 AIM OF THE LONDON STRUCTURAL COLLAPSE RESPONSE AND RECOVERY FRAMEWORK The prime objective in the event of an incident involving structural collapse and subsequent site clearance activity is to save life and limb and support the restoration of services and the return to normal activity in a safe and timely manner having due regard to potential health, social, infrastructural, economic and environmental impacts. Strategic Co-ordinating Groups (SCGs) are expected to use the information in this document to inform their planning and response. This document will be subject to continuous development as lessons are learned from exercises and live incidents. 1.4 AUDIENCE This plan is intended for representatives of agencies and organisations within the London Resilience Partnership who would have a role to play in the response to an emergency involving structural collapse. The plan is also intended for use by any individual or agency in neighbouring regions where inter-regional/national arrangements or responses are required. The plan is publicly available to provide information on the work which has been completed by responding organisations in London to ensure that London is prepared for an incident of this nature. Finally, the London Structural Collapse Response and Recovery Framework Page 6 of 45

7 plan may be distributed more widely to share good practice and information about the resilience work which has taken place in London. 1.5 PLAN OWNERSHIP, AUTHORISATION AND ADMINISTRATION The London Structural Collapse Response and Recovery Framework is owned by the London Regional Resilience Forum and is produced and maintained by the London Resilience Team. 1.6 AUDIT AND AMENDMENTS This plan is subject to annual reviews, reflecting the alterations made to any Partnership plans as well as the creation of any new plans. All amendments to this document have been cleared by the London Resilience Programme Board on behalf of the London Regional Resilience Forum. 1.7 PUBLICATION AND DISTRIBUTION This plan will be published on the London Prepared website: and is available to all. In addition, copies of the plan will be circulated to all members of the London Resilience Partnership. 1.8 DATA PROTECTION Any requests under the Freedom of Information Act should be directed to the Public Liaison Unit at the Greater London Authority. The plan is also subject to the Data Protection Act which requires that any contact details listed on the plan cannot be released without the authorisation of the individual listed. London Structural Collapse Response and Recovery Framework Page 7 of 45

8 SECTION 2 STRATEGY 2.1 NOTIFICATION PROCESS Having been notified of a credible incident, police will inform other emergency responders and partner agencies, such as London Resilience Team, Health Protection Agency, Environment Agency and the Government Decontamination Service. London Resilience Team Police Credible Reported Incident Fire & Rescue Service Ambulance Service Local Authorities Home Office Health Protection Agency Acute Trusts & NHS London GDS MOD (MACP) Transport Sector Environment Agency London Resilience Team GLT CCS Other Regions Other Govt Depts. London Structural Collapse Response and Recovery Framework Page 8 of 45

9 2.2 STRATEGY The primary objectives in relation to any major incident/emergency involving structural collapse will be determined by the strategic co-ordination group and may include issues such as: ensuring the safe rescue of trapped and injured persons facilitation of criminal and other investigation the recovery of fatalities and human remains (London Mass Fatalities Plan) with due regard to the environment the safe removal and disposal of rubble and other debris the recovery of personal and other items of value facilitating the recovery process and restoration of normality ensuring environmental impacts from site clearance are appropriately controlled maintaining, so far as possible, normal services at an appropriate level Site clearance is one aspect for consideration at strategic management level. However, it is likely to raise many complex issues and involve a wide range of interests. Achievement of the strategic aims will be dependent on robust and appropriate structural collapse and site clearance capability. 2.3 MEETING THE COST OF STRUCTURAL COLLAPSE RESPONSE AND RECOVERY In the case of accidental or malicious damage, the costs would normally fall on the party responsible for causing the damage. In the case of damage through natural causes, responsibility would normally be expected to rest with the owner or occupier of a property. The public sector, central and local government, largely bears its own risks. In the private sector, owners or occupiers will want to consider with their advisers what insurance is available. Many household insurance policies will cover the cost of removing debris caused, for example, by fire, explosion, lightning or earthquake. However, many policies now exclude terrorism damages caused by nuclear, chemical, biological or radiological means. In these circumstances, local authorities would normally take the lead in arranging decontamination of private property. Insurance for commercial property may also cover the cost of removing debris. In the event of a major incident affecting numerous properties in the same area, a large number of insurers are likely to be involved. Experience shows that opening and maintaining from the outset regular communication with insurers and those they represent can help speed the recovery process and avoid later misunderstandings over the allocation of costs. Linbrook Services are the existing Structural Collapse Contractor for London following a tendered process, and this contract is in place until Full details of their call out process is outlined in the Operational Plan at Appendix G. Linbrook Services will keep detailed records of work that is necessary and its cost. This approach will facilitate the local authorities subsequent recovery of costs incurred from the building owners that would become part of their insurance claims. In circumstances where the responsible local authority is unable to recover its costs from building owners or their insurers, s107 London Structural Collapse Response and Recovery Framework Page 9 of 45

10 of the Building Act 1984 provides a power to register the unrecovered monies as a charge on the land affected that can be recovered, with interest, when the land is next sold. Assistance towards costs incurred by local authorities during an incident may be available in some circumstances. Re-imbursement of qualifying expenditure may be made through the Bellwin Scheme, operated, in England, by the DCLG under powers provided by s155 of the Local Government and Housing Act Subject to meeting the scheme s requirements, examples of expenditure likely to qualify for Bellwin grant include payments made under s138 of the Local Government Act 1972 (which empowers local authorities to incur expenditure or make grants or loans where an emergency or disaster involving destruction of or danger to life or property occurs or is imminent), hire of additional vehicles, plant and machinery that are not those already in use by the LA, and emergency works to safeguard dangerous structures, including making them secure (where not insurable). Expenditure that a local authority would normally expect to incur in an area, for which there is already a government expenditure programme, is not eligible for reimbursement and most capital expenditure is excluded from the Bellwin scheme. Assistance with certain categories of expenditure not covered by the Bellwin scheme may be available through other means. Revenue expenditure and loss of income by local authorities may be compensated by special grant under s88 of the Local Government Finance Act 1988 or s31 of the Local Government Act 2003 where the circumstance or type of expenditure/loss falls outside the coverage of the Bellwin scheme. 2.4 PUBLIC INFORMATION Continuous and sustained demands for information by the public and media will be extremely high from the outset through to completion of the site clearance process. Information should be co-ordinated and integrated across all responder agencies and government departments and delivered to the public in an accurate, co-ordinated, timely and easily understood manner. A sustainable public communication strategy, which identifies those responsible for information and media management (including protocols identifying talking heads ) at strategic, tactical and operational levels, is therefore an important consideration. Taking into account the likely duration of the remediation process, the information needs of varying community audiences e.g. residents, businesses, special needs, travellers, should be assessed and flexible mechanisms established to ensure effective dissemination and feedback. The provision and management of adequate telephone helpdesk arrangements should also be considered to ensure that calls from the public and media are answered promptly by well informed call handlers. Automated helpline systems should also be considered to handle the volume of calls expected during a major emergency. 2.5 HANDLING AND CONTROLLING DONATIONS Development of plans should include arrangements for the controlling of donations. Experience shows that following major incidents a variety of donations including clothes, food, furniture, blankets and flowers are likely to be made at or near the site. London Structural Collapse Response and Recovery Framework Page 10 of 45

11 Unless properly controlled and directed such action, although well intentioned, may impede the response and recovery process. London Structural Collapse Response and Recovery Framework Page 11 of 45

12 SECTION 3 - KEY PHASES IN STRUCTURAL COLLAPSE RESPONSE AND RECOVERY The structural collapse response and recovery process can be divided into five key phases, which are outlined below. The main focus during the initial stages of an incident is likely to involve search and rescue activity, with additional recognition of any investigative or forensic issue. However, during the later phases, the focus is likely to shift toward the facilitation of recovery and restoration of normality or future regeneration. 3.1 PHASE 1: EMERGENCY RESPONSE At an early stage, police in conjunction with the LFB will determine the extent of cordons in order to containing the incident and limiting its escalation or spread. The MPS will appoint a Scene Evidence Recovery Manager (SERM) who will co-ordinate the response and recovery activity on behalf of the Senior Investigating officer and the Disaster Victim Identification process if applicable, to the Senior Identification manager (SIM). In the case of a Terrorist Incident, the SERM will be appointed by the Counter Terrorism Command. During this phase the LFB will play a key role in commissioning site clearance activity where this is needed to facilitate search and rescue. In doing so, they will conduct a dynamic risk assessment to inform their actions and, in particular, to avoid exposing personnel to unnecessary risks. An overview of LFB Urban search and Rescue procedure is outlined at Appendix H. Linbrook Services are the structural collapse contractor for London and will be called out by the appropriate Local Authority. They have their own Health and Safety arrangements and a full risk assessment will be conducted on behalf of their staff. They can be deployed to the site as appropriate and receive directions and tasking from the LFB. Wherever possible, remote monitoring equipment (cameras) will be used to enable non- LFB personnel to make their assessments from outside the inner cordon. In the case of an incident arising from known or suspected terrorist action, an immediate priority will be to check whether there is chemical, biological, radiological contamination, or potential explosives on or around the site. This will be done initially by the LFB or specialist agencies in consultation with the police. These checks, which should be kept under review throughout the response and recovery process, and the need to search for forensic evidence, may have an effect on the conduct and timing of the clearance process. In addition, local hospitals should be informed of pertinent issues at the site, which may impact on the treatment of work casualties, should they occur. Initial decisions on the management of debris will be undertaken by the strategic coordination group. London Structural Collapse Response and Recovery Framework Page 12 of 45

13 3.2 PHASE 2: SITE INVESTIGATION Every incident is likely to be the subject of at least one investigation/inquiry, whether for HM Coroner, a public inquiry, or civil or criminal court proceedings. As a result evidence collected should be of the highest possible quality. The Police, in the first instance, will attend the incident site as a potential scene of crime to collect evidence. Appropriate care is needed in handling the debris. Continuity and integrity of the scene and anything collected from it is critical. Prevention of forensic contamination/crosscontamination is of paramount importance. For this reason, as well as the more general need to protect the incident site against looting and vandalism, the police, in consultation with the LA, will make appropriate arrangements at the earliest opportunity to secure the incident site. The extent of forensic investigation and evidence required will be influenced by the nature of the incident. As a consequence, the search for evidence may result in debris removal being delayed. In the case of a police led investigation, the Senior Investigating Officer will be responsible for determining the forensic strategy. However, it is likely that he/she will consult with police Gold in this process. This is a key decision. Carrying out the sifting at the scene will be likely to maintain scene preservation and integrity, but its scale may not make this possible. Removing debris from the scene will almost certainly reduce its forensic integrity. In cases where the investigatory process is being conducted by other agencies memorandums of understanding are already in place. These include: the Workplace Death Protocol between the police, HSE, local authorities and the Crown Prosecution Service; a memorandum of understanding between HSE, the Marine Accident Investigation Branch and the Marine Coastguard Agency, and an agreement between the HSE, Rail Accident Investigation Branch and British Transport Police. In some circumstances sifting for investigative and other purposes, including recovery of human remains, personal possessions and items of value, may have to be carried out at an off-site location, rather than at the incident site. This may be because there is insufficient space at the site or there are particular sensitivities surrounding the incident that are best addressed by moving material offsite. Please refer to the Operational Plan at Appendix G for the current status of a London sifting site and establishment of a temporary structure for forensic sifting and DVI. 3.3 HANDLING BODIES Detailed guidance on this issue is contained in the London Mass Fatalities Plan, which can be accessed online via the London Prepared website PHASE 3: SITE STABILISATION As the incident progresses towards the site stabilisation phase, lead responsibility will normally be transferred from the emergency services to the local authority in order to facilitate their role in the return to normality and restoration of the environment. London Structural Collapse Response and Recovery Framework Page 13 of 45

14 Following hand-over, the responsible local authority will co-ordinate communications between building owners, insurers, the emergency services, private contractors and government departments/agencies. This will generally be conducted through the liaison within the recovery working group. A key priority during this phase will be the maintenance of an exclusion zone for essential personnel only. Another priority should be to ensure the management of a reduction in the size of this zone in the shortest possible time, to allow for entry by residents, building owners, private contractors and workers into the areas affected. 3.5 PHASE 4: SITE CLEARANCE Once any relevant investigation has been completed and, where appropriate, the incident site is no longer deemed a crime scene, general clearance can commence. This may be phased as different sectors are cleared of evidence or bulk debris is removed to an examination site. Authority to initiate general clearance will normally be given by the investigating authority once they are satisfied that they have removed all the evidence or debris they need. Once the Local Authority where the incident has occurred has discharged itself of its statutory responsibilities in making the highway safe for the public, the responsibility for clearance of the site will rest with the building owner and/or insurance company. There will be strategic co-ordination from the Recovery Group and financial decisions still to be made, particularly in terms of contracting equipment already deployed which will have to be bought out by the building owner or representative, who will also be responsible for resourcing ongoing clearance of the site. Experience from other major incidents has confirmed the value of engaging a specialist adviser with appropriate civil engineering or quantity surveyor skills to advise on the site clearance operation. This person would provide expert advice on the use of appropriate equipment and would act as an intelligent customer in negotiations with contractors. The dangerous structures contractor Linbrook Services may provide this capability. Construction, excavation and demolition contractors will continue to be required during this phase. In the event that an incident crosses local authority boundaries, care should be taken to ensure close and regular communication in order to avoid situations in which contractors receive multiple requests for assistance and, in extreme cases, risk being overwhelmed or have to balance potentially conflicting demands. In the event of the London Local Authority Gold arrangements being implemented, it is expected that the London Local Authority Control Centre will perform this function. The responsible LA may continue to co-ordinate clean-up activities for large or complicated sites but, as soon as possible, and once it is safe to do so, the LA should return the site to site owners and residents. 3.6 PERSONAL ITEMS AND SENSITIVE BUSINESS DOCUMENTS Sensitive documents and personal items may be found in and around the incident site. Wherever possible arrangements should be developed to cover the sorting and storage objects and ensure that personal belongings are returned to the rightful owners. These arrangements should include long term storage or disposal where owners cannot be located. London Structural Collapse Response and Recovery Framework Page 14 of 45

15 3.7 DECONTAMINATION OPTIONS FOR A CBR INCIDENT When the nature and extent of the damage and contamination has been established a site clearance strategy will require to be developed by SCG, with the aim of reducing the contamination to a pre-determined level that is considered reasonably practicable and meets public health and environmental safety criteria. Sampling, monitoring and prioritisation of the work activities will be a key aspect of this strategy. The decision whether to remediate, and to what extent remediation is required, is complex and based on many factors. However, in all cases there is a need to balance the risk to society and the environment from any residual contaminant against: the cost, practicability and likely effectiveness of decontamination; the ease with which the effectiveness of decontamination can be verified; the human health hazards and environmental effects of the use of decontaminants; the human health hazards and environmental effects of site clearance; the resulting impact on the environment e.g. the long term impact on ground water and the potential for this to impact on human health; political need; and the views of residents and other users of the area. In general terms, there are five main options with respect to remediation, but not all of these options are available for every site or all contaminants: to decontaminate the affected area and return it to its original use; to decontaminate the affected area and change its use to reflect the level of residual hazard; to change the use of the affected area to reflect the level of residual hazard posed by the contaminant; to seal off the area temporarily, using anti-intruder fencing or equivalent, and allow the contaminant to disperse or breakdown naturally aided by weather conditions; and to seal off the area permanently, taking no further action, preventing access. The determination of the decontamination strategy will be undertaken by a number of agencies including the HPA and EA in conjunction with the local authority. The Government Decontamination Service will be available, if requested by the local authority, to give advice about decontamination strategy and tactics and on the availability of contractors capable of carrying out the work. The local authority and EA will work together to remediate the contamination, and the EA will give advice for specific situations, e.g. water, soil and air contamination. 3.8 RECOVERED MATERIALS Not all the debris from the site should be considered as waste. Consideration should be given to possible markets and other uses for the range of materials that may be generated by site clearance. As a result the quantity of waste debris will not only keep London Structural Collapse Response and Recovery Framework Page 15 of 45

16 down disposal costs and reduce demand for landfill capacity, but will demonstrate ecological awareness. During the planning phase arrangements should be put in place to ensure that, in the event of an incident involving site clearance, there is clear understanding and agreement between the responsible authority, site/building owners and their insurers, over handling and right to receive revenue generated by any of the above activities. It is recognised that materials removed from a building or site remain the property of the owner. However, section 100 of the Building Act 1984, provides certain conditions under which the local authority can sell or dispose to landfill any of the material concerned. In some cases site/building owners themselves or insurers acting on their behalf may commission recycling or other related activity. In these circumstances any revenue generated will be a matter for settlement between them. 3.9 TRANSPORT OF DEBRIS Plans should consider the full range of transport modes that might be required to facilitate the removal of debris from incident site(s) to end point(s). The following issues will require consideration: registrations required to carry waste; loading equipment available on vehicles for the type of waste that may be carried; arrangements and responsibilities for procuring vehicles to transport debris; arrangements required to provide parking or waiting space, fuelling and maintenance for contractor vehicles especially during the bulk clearance phase of an incident, at or near the incident site; whether the type of debris carried will affect the future use of the carrier; the need for transport units to be cleaned prior to accepting loads to ensure there is no contamination of evidence; health and safety (including personal protective equipment) of operators; compensation/insurance arrangements; and whether other contractors assisting in the site clearance process may include the transporting of debris as part of their contract. Wherever practicable, compounds for storing materials and waste skips should be located away from environmentally sensitive areas on site, such as drains, water bodies and site boundaries close to housing/offices. Transport and disposal of potentially substantial volumes of hazardous waste present particular challenges. The EA should be consulted for advice on the availability of suitable landfills and other possible options. The latter might include possible extension of any temporary storage arrangements already permitted. The transfer of material classified as hazardous is subject to controls outlined in the Hazardous Waste (England and Wales) Regulations Where, in the event of a catastrophic incident, dangerous goods are being carried with the intention of saving life or protecting the environment, the Department for Transport has power to issue Letters of Authorisation relaxing or disapplying the requirements London Structural Collapse Response and Recovery Framework Page 16 of 45

17 of the Carriage of Dangerous Goods and Use of Transportable Pressure Equipment (Amendment) Regulations This is conditional on all measures being taken to ensure that carriage is carried out safely and securely. The Road Haulage Association can be consulted for advice on these matters and their contact details are at Appendix G PHASE 5: DISPOSAL OF DEBRIS Decisions about the disposal methods should be informed by factors such as: volume and type of rubble and other debris generated (good quality estimates will help inform decisions about the level of resource required); whether debris is suitable to be taken for recovery or disposal without prior treatment; contamination of debris with hazardous material and the risks to health and the environment. incident site characteristics, including site location and accessibility environmental complications; urgency of site clearance; availability and accessibility of appropriate disposal sites; available daily disposal capacity; availability of equipment and operator services for the type of operation; and debris recycling possibilities. Although generally discouraged by national UK policy, landfill has the advantage of being able to receive bulky wastes and wastes in large quantities and at relatively short notice. A CBRN incident, for instance, can be regarded as an emergency situation under which normal policy requirements (but not safety requirements) may have to be overridden. The ESA can provide advice on the availability of landfill sites. As alternative treatment for solid waste, infrastructure is developing for recycling and recovery, and incineration and physiochemical treatment is available commercially for hazardous waste. Technologies have been developing for contaminated soil treatment, and include soil washing, thermal desorption and biological treatment. Disposal at sea presents a potentially serious threat to the food chain by contaminating fish as well as to other countries waters or beaches. For these reasons permits to undertake such disposal are granted only for limited types of material at limited locations. Disposal at sea is unlikely, therefore, to provide an acceptable solution to the disposal problems created by site clearance. Further information and advice can be obtained from the Marine and Fisheries Agency (MFA) in the Department for Environment, Food and Rural Affairs (DEFRA). London Structural Collapse Response and Recovery Framework Page 17 of 45

18 SECTION 4 - ROLES AND RESPONSIBILITIES STRUCTURAL COLLAPSE RESPONSE AND RECOVERY During the early stages of an incident the London Fire Brigade are likely to initiate site clearance activity where it is necessary for the conduct of search and rescue activities. This will be conducted in close co-operation with other responders, such as police, where there is a need to consider investigatory issues. However, once such activities have ceased, it is assumed that the lead responsibility for site clearance will pass to the local authority who will act in close co-operation with organisations such as: the site owner, insurers, contractors and the Environment Agency. In all phases, the following organisations and individuals will have a role to play: 4.1 SITE/BUILDING OWNER In the case of commercial and domestic properties, the site or building owner is responsible in most cases for arranging and meeting the costs of site clearance, following an incident. Where there is no obvious owner the person responsible for the site management holds the responsibility for a site clearance operation. Site owners will be expected to work in close conjunction with and, wherever appropriate, under the direction of the responsible local authority to facilitate the clear up and recovery process. In particular it is expected that site/building owners will: co-operate with the local authority and others in fulfilling their responsibilities; co-operate with the Environment Agency in providing facts about the history of the building being cleared. The building owner may have considerable knowledge about the presence of oil or gas stores, chemicals or presence of asbestos or contaminants in building infrastructure etc; inform their insurers and co-operate with loss adjusters; be responsible for maintaining site security after responsibility has been relinquished by police and the local authority; be responsible for commissioning contractors to carry out detailed site evaluation (including further sampling) and subsequent decontamination (if required) of building, systems and contents, demolition and removal of waste; be responsible for establishing that the building is safe for re-occupation by obtaining verification from the leading authority; and maintain a communication strategy to inform employees and key stakeholders 4.2 LOCAL AUTHORITIES Local authorities have a key role to play in co-ordinating the site clearance process in close conjunction with site/building owners or occupiers and their insurers. Where there is an immediate threat to life, and site/building owners cannot be identified or located, London Structural Collapse Response and Recovery Framework Page 18 of 45

19 the local authority will take a lead role in assessing the structural stability of affected buildings; arranging demolition and/or arranging site clearance. Whilst the precise nature and range of inputs required may be affected by the type and scale of incident, all incidents are likely to make significant demands on local authority staff and resources. Key roles that the local authority may be able to assist with include: Building Control/Surveyors Department who in some cases may be able to provide plans and information relating to public buildings, such as: hospitals, libraries etc. In addition they are also able to provide advice on the issue of access passes to the site following handover from police or other investigative body. Highways Services who will be able to assist with traffic management issues, and where appropriate consult with Traffic for London and the Highways Agency in relation to matters that are likely to impact upon the strategic road network. Public/Environmental Health, who in association with the Health Protection Agency will consider public health risks. Furthermore, they will liaise with Department for Environment, Food and Rural affairs and Environment Agency over suitable decontamination methods, debris removal methods and disposal sites. 4.3 ENVIRONMENT AGENCY Details of the roles and responsibilities of the Environment Agency are contained within the current edition of Emergency Response and Recovery, which can be accessed online at: /238642/err-guidance pdf 4.4 HEALTH AND SAFETY EXECUTIVE Details of the roles and responsibilities of the Health and Safety Executive are contained within the current edition of Emergency Response and Recovery, which can be accessed online at: /238642/err-guidance pdf 4.5 POLICE SERVICES Details of the roles and responsibilities of the Metropolitan Police, City of London Police and their inter service co-operation with British Transport Police are contained within the current edition of the LESLP Manual, which can be accessed online at: London Structural Collapse Response and Recovery Framework Page 19 of 45

20 4.6 LONDON FIRE BRIGADE Details of the roles and responsibilities of the London Fire Brigade are contained within the current edition of the LESLP Manual, which can be accessed online at: LONDON AMBULANCE SERVICE Details of the roles and responsibilities of the London Ambulance Service are contained within the current edition of the LESLP Manual, which can be accessed online at: MILITARY ASSISTANCE Details of how to request assistance available from the military is contained within the current edition of the LESLP Manual, which can be accessed online at: VOLUNTARY AGENCIES Volunteers can contribute to a wide range of activities, either as members of a voluntary organisation or as individuals. When responding to an incident, whether local or national, they will always be under the control of a statutory authority. Appropriate Voluntary agencies can be accessed and co-ordinated through the London Resilience partnership 4.10 UTILITY COMPANIES The utility companies are able to control gas, water, telecommunications and electrical supplies. They can be mobilised by any of the emergency services and will normally be co-ordinated by the police in the first instance. A request for power off, line closures or service restoration should be passed through the appropriate infrastructure control via emergency services control rooms. This control will confirm that the request has been carried out. With regard to telecommunications, the emergency services and local authorities have 24 hour access to the respective service providers by using the British Telecommunications National Emergency Link line and other appropriate local telecommunications providers London Structural Collapse Response and Recovery Framework Page 20 of 45

21 4.11 HEALTH PROTECTION AGENCY The HPA protects the health and well-being of everyone in England and Wales. Its responsibilities include playing a key role in preventing harm when hazards involving chemicals, poisons or radiation occur and preparing for new and emerging threats. London Structural Collapse Response and Recovery Framework Page 21 of 45

22 SECTION 5 COMMUNICATION As part of its Warning and Informing Strategy, the London Resilience Partnership has developed a number of formal methods for communicating with both the Partnership and the public, both in peacetime and in the event of an emergency. 5.1 LONDON PREPARED WEBSITE The London Resilience Partnership website, London Prepared, is a part of the programme of Warning and Informing work being undertaken across the region. The website carries up to date information on emergency preparedness in the capital and is primarily aimed at the general public and business community in London. The site contains a wide range of resources including: Detailed emergency plans for London; Links in case studies; Information on current hazards; Advice to businesses on preparing for, and recovery after, an emergency; Guidance on responding to emergencies. The website is also used by the Partnership to provide up to date emergency information when a major incident occurs. All the publicly released Partnership plans and a wide range of useful information are available for download. 5.2 THE LONDON MEDIA EMERGENCY PLAN The London Media Emergency Plan covers the timing and activation of media operations, the establishment of a media centre, and the role which the Mayor, as the Voice of London, will play during such an incident. The London Media Emergency Plan is an internal plan therefore it is not available to the public. London Structural Collapse Response and Recovery Framework Page 22 of 45

23 SECTION 6 - QUESTIONS, COMMENTS OR AMENDMENTS Any questions, comments or requests for amendments should be directed to the London Resilience Team, by on: lrt@london.gov.uk or by writing to: London Resilience Team, Greater London Authority City Hall The Queens Walk More London SE1 2AA London Structural Collapse Response and Recovery Framework Page 23 of 45

24 NON RESTRICTED APPENDICES APPENDIX A - LEGISLATION AND REGULATION This annex provides summary details of legislation and regulation likely to be relevant to site clearance operations. It is not intended to be exhaustive, nor should it be considered a substitute for authoritative legal advice. LOCAL GOVERNMENT AND FINANCE Section 138 Local Government Act 1972 Gives LAs power, in the event of an emergency or disaster involving destruction of or danger to life or property, to incur expenditure in taking action to avert, alleviate or eradicate the effects of the disaster. Does not provide any rights of entry. Section 111 Local Government Act 1972 General power of LAs to do anything which is calculated to facilitate, or is conducive or incidental to, the discharge of any of their functions. Does not provide any rights of entry. Section 2 Local Government Act 2000 Gives LAs general power to do anything which they consider is likely to promote or improve the well-being of their area (including economic, social and environmental). Again does not provide any rights of entry. Section 76 Building Act 1984 defective buildings Where the buildings are in such a state as to be prejudicial to health or a nuisance and unreasonable delay would be caused by following procedure in section 80 of the Environmental Protection Act 1990, LA may serve a notice on occupier specifying the defect. LA may, 9 days later, execute such works as are necessary to remedy the defective state and recover costs. Section 77 Building Act 1984 dangerous buildings Where a building is in such a state as to be dangerous the LA may apply to a Magistrates Court for orders that the owner execute such work as is necessary to obviate the danger, or restricting its use until further notice. No notice is expressly required. Section 78 Building Act 1984 dangerous building emergency measures If a building is in such state as to be dangerous and immediate action is necessary to remove the danger this allows the LA to take immediate action to remove the danger. But may not cover all site clearance (for instance where it may not be a danger but still needs to be removed urgently). London Structural Collapse Response and Recovery Framework Page 24 of 45

25 Section 79 Building Act 1984 Ruinous and dilapidated buildings Where a building or rubble from a building s collapse/demolition is in such a state as to be seriously detrimental to the amenities of the neighbourhood, LAs may require the owner to execute such works of repair (or at the owner s election, demolish the building and remove any resulting rubbish) or removal of rubbish as is necessary in the interests of amenity. The LA must give notice to the owner and state the time within which the works are to be executed. Section 95 Building Act 1984 Powers of Entry Power to enter premises at all reasonable hours to investigate, undertake works or for any other performance of LA functions under the Act with the following restrictions: entry to premises other than a factory or workplace only on 24 hours notice, unless a warrant is obtained; and immediate entry with a warrant signed by a justice of the peace in a case of urgency. Section 99(2) Building Act 1984 Enforcement notice Section 99(2) enables the LA to execute works and recover expenses for carrying out such works if the person upon whom notice to carry out the works fails to execute the work within the time specified in the notice. A right of appeal exists under section 102. Section 100 Building Act 1984 Sale of materials In accordance with the provisions of Section 100 of the Building Act 1984, the owner has 3 days within which to claim them after which they may be disposed of to a landfill site or sold by the responsible authority. In these circumstances, the responsible authority should, on receipt of any proceeds, deduct its necessary costs and pay the balance to the owner or, where appropriate, their insurer. Payment to insurers is likely to be appropriate where a claim is progressing towards reinstatement and under subrogation rights the proceeds belong to the insurer. Section 80 Environmental Protection Act (EPA) 1990 Abatement notice Where a LA is satisfied that a statutory nuisance exists under s79 of the EPA 1990, the LA must serve an abatement notice under s80. The abatement notice must require abatement, prohibition and/or restriction of the nuisance, and/or further works or steps necessary to achieve these ends, within a timescale. It is an offence to breach, or fail to comply with, an abatement notice, without reasonable excuse, punishable by a maximum fine of 5,000 for individuals and 20,000 for businesses through the magistrate s court. The notice is served on the person responsible for the nuisance, or the owner of the premises if the nuisance is caused by structural defects. There is a 21 day period in which a notice can be appealed. Private action is available under s82 of the EPA 1990 through the magistrate s court, where, if a statutory nuisance is found to exist, the magistrate will order an abatement notice. Powers of entry are provided by Schedule 3 of the EPA The LA may enter any premises at any reasonable time to check for statutory nuisance or undertake action or work, although 24 hours notice should be given to residential premises. The LA may enter by force with a warrant if necessary. London Structural Collapse Response and Recovery Framework Page 25 of 45

26 Section 155 of the Local Government and Housing Act 1989 Permits the Secretary of State to establish a scheme for a payment of disaster grants where an emergency or disaster has occurred involving destruction of or danger to life or property, and one or more local authorities incur expenditure. ENVIRONMENT, POLLUTION AND WASTE The Pollution Prevention and Control Act 1999 Integrated Pollution Prevention and Control (IPPC) Directive builds on the present UK system of Integrated Pollution Control (IPC) but, as well as covering emissions to land, air and water, the Directive covers noise, energy efficiency, waste minimisation and site restoration. The primary purpose of the Directive is to prevent and control pollution arising from a defined range of activities, including certain waste management processes: landfill, incineration, hazardous waste treatment and other recovery processes. IPPC also controls new processes and industries. The Pollution Prevention and Control Act 1999 implemented the Directive on integrated pollution prevention and control into UK legislation. The Act regulates activities capable of causing environmental pollution, preventing and controlling potentially polluting emissions. Permit conditions are set by the EA, based on Best Available Techniques (BAT) so as to achieve a high level of protection for the environment as a whole. The IPPC Regulations 2000 implement the EU IPPC Directive in England and Wales. The Pollution Prevention and Control Regulations 2000 Pollution Prevention and Control is a regime for controlling pollution from certain industrial activities. The regime introduces the concept of Best Available Techniques (BAT) to environmental regulations. Operators must use the BAT to control pollution from their industrial activities. The aim of the BAT is to prevent, and where that is not practicable, to reduce to acceptable levels, pollution to air, land and water from industrial activities. The BAT also aims to balance the cost to the operator against benefits to the environment. The system of Pollution Prevention and Control is replacing that of Integrated Pollution Control and is taking effect between 2000 and The Pollution Prevention and Control regime implements the European Directive (EC/96/61) on integrated pollution prevention and control. The Pollution Prevention and Control Regulations 2000 are being amended to provide a power of emergency direction. Waste Strategy 2000 The Waste Strategy 2000 for England and Wales aims to improve waste management in the UK, by better use of natural resources, through waste reduction, re-use, recycling, composting and energy recovery. WS2000 also forms part of the UK s approach to meeting its EU legal obligations to produce a national waste strategy. It lays the foundations for a robust waste management sector able to meet future market challenges and legislative developments. EU: The Waste Shipments Regulation The Waste Shipments Regulation controls the movement of waste, implementing the Basle Convention, the OECD Council Decisions on trans-frontier movements of waste, London Structural Collapse Response and Recovery Framework Page 26 of 45