Preparing a Recovery Plan

Transcription

1 Preparing a Recovery Plan INFORMATION FOR LOCAL AUTHORITIES [IS4/O2] INSPECTED No restriction on use or occupancy

2 Preparing a Recovery Plan Information for local authorities (IS4/02) June 2002 ISBN Published by the Ministry of Civil Defence & Emergency Management. This document is not copyright and may be reproduced with acknowledgement. This document together with further information about the Ministry is available on the website: Ministry of Civil Defence & Emergency Management PO Box 5010 Wellington New Zealand Tel: Fax: emergency.management@dia.govt.nz Website:

3 Preparing a Recovery Plan Information for local authorities (IS4/02)

4 Contents Foreword Introduction 1 Putting the Recovery Plan into Context 3 Links to Key Documents 3 Reduction 3 Readiness 4 Response 4 Key Tasks and Responsibilities of the Recovery Plan 5 1 Transition From Response 6 2 Management Structure 7 3 Community Involvement 8 4 Impact Assessment 9 5 Data Management 11 6 Central Government Involvement 12 7 Public Information 13 8 Rehabilitation and Assistance 15 9 Implementation of Reduction Measures Financial Management Reporting Managed Withdrawal 20 Appendix A: Appointing a Recovery Manager 23 Appendix B: Terms of Reference 31

5 Foreword This guide to preparing a Recovery Plan has been produced by a reference group of people involved in local emergency planning. The group is representative of the different agencies involved in civil defence and emergency management in New Zealand and includes staff from regional, city and district councils and from the Ministry of Civil Defence & Emergency Management. This guide reflects the collective experiences of the people in the reference group, many of whom have learned the hard way what can go wrong during the recovery process. The Ministry acknowledges and thanks all members of the reference group for their work. This document does not provide a template for a Recovery Plan; instead, it works through the issues and problems of each of the major tasks involved in recovery, and highlights the areas that require attention during the planning process. This document represents only part of the task involved in addressing the wider issues around recovery. Further development of advisory documents on the administration of Relief Funds, and a revision of previous survey forms and processes, have been identified as priority needs by those who commented on the draft of this document. The Recovery Page on the Ministry s website will be updated as each project is completed. Reference Group Members Clive Manley Ian Maxwell Neil Brown Tim Jago Ron White Ged Shirley Gale Blikshavn Ian McKenzie Denzil Duncan Kevin O Kane Chief Executive, Far North District (also member of Disaster Recovery Coordinators Group) Group Manager, Auckland City Manager, Civil Defence and Rural Fire, Dunedin City Manager, Hazards and Emergency Management Auckland Region Manager, Emergency Planning Unit Thames Valley Combined Manager, Emergency Management Office, horizons.mw Community Education Coordinator, Wellington City Project Manager, City Solutions, Christchurch City Ministry of Civil Defence & Emergency Management Ministry of Civil Defence & Emergency Management (Affiliations are as at February 2002.)

6 Introduction The current Civil Defence Act 1983 includes restoration and rehabilitation following civil defence emergencies as part of its full title. The proposed Civil Defence Emergency Management [CDEM] Bill requires local authorities to coordinate plans, programmes and activities related to CDEM across the areas of reduction, readiness, response and recovery, and encourages cooperation and joint action within regional groups. Risk reduction is identifying hazards, describing risks, and taking actions to reduce the probability or consequences of potential events. Readiness covers the planning and preparation required to equip agencies and communities to respond and recover. Response activities address immediate problems after an emergency. Recovery is focused on addressing the long-term rehabilitation of the community. The new CDEM regime will establish regional CDEM Groups consortia of local authorities working in partnership with emergency services, utilities and others to deliver CDEM within regional boundaries. Under clause 17 of the CDEM Bill, one of the functions of the CDEM Group is to carry out recovery activities. The CDEM Bill defines recovery activities as - Activities carried out under this Act or any civil defence emergency management plan after an emergency occurs, including, without limitation, - (a) (b) (c) (d) the assessment of the needs of a community affected by the emergency; and the co-ordination of resources made available to the community; and actions relating to community rehabilitation and restoration; and new measures to reduce hazards and risks. CDEM Groups planning responsibilities are assigned in clause 46(2) of the CDEM Bill and are prefaced in clause 3: (c) Provide for planning and preparation for emergencies and for response and recovery in the event of an emergency; These guidelines have been produced to assist CDEM Groups to develop Recovery Plans. Pages 5 to 21 of this document: define recovery tasks identify recovery-specific issues and challenges indicate planning needs. While identifying areas that require planning, this document does not provide a template for a Recovery Plan. 1

7 2

8 Putting the Recovery Plan into Context Recovery planning will take place in the context of other emergency planning documents, and will follow the reduction, readiness and response phases of emergency planning. Links to Key Documents Recovery planning is done within the context of a range of other emergency planning documents, including the CDEM Group Plan, the National CDEM Plan, The Director s Guidelines on Planning and business continuity and recovery plans of key agencies. The CDEM Group Plan sets the strategic direction for all local emergency planning, and establishes the key responsibilities of agencies with a role in both response and recovery. The National Civil Defence Emergency Management Plan (under preparation) outlines agreed roles for national agencies, and the support mechanisms that central government will provide to CDEM Groups in a large-scale event. The Director s Guidelines on Planning contain requirements that need to be considered in Recovery plans. Recovery plans compiled by the CDEM Group and the business continuity and recovery plans of key agencies contributing to the recovery effort should be mutually aligned. Reduction When a community is recovering from an emergency there are opportunities to reduce the risks of future events. For example, if buildings have been destroyed, opportunities exist to avoid building in the hazardprone area, or to build in a way that better addresses the relevant risks. Similarly, if a community has suffered significant losses because of economic or social factors (such as a lack of insurance), assistance can include incentives to address their vulnerabilities. These risk reduction issues may be addressed in the strategic part of the CDEM Group Plan. During the risk analysis process, indicators can be established to assess the viability of rebuilding in risk-prone areas. Contingency plans can be prepared to relocate essential infrastructure or services or use different delivery mechanisms or technology. In this way the event provides an opportunity to upgrade or alter the current arrangements. Information from Lifelines projects will add value to the risk analysis process. Regional and district plans work to reduce risk through methods such as: linking future development zones and sites to hazard analysis extending at-risk building surveys to include alternative sites for rebuilding key facilities providing for disposal of waste material (including potentially or actually contaminated waste), including provision of consent under the Resource Management Act (RMA) providing financial initiatives to encourage people to adopt risk reduction measures aligning district and regional plan provisions regarding rebuilding, to prevent a s20 RMA challenge to a variation of existing use rights. 3

9 Readiness Readiness activities include three elements that overlap with recovery issues. Training schedules should allow for: specific recovery-context learning (such as emergency expenditure) a general understanding of response roles shared training where processes overlap (eg, registration and public enquiry). Public education planning should include consideration of recovery issues such as: public expectations of what assistance might be available pre-design of material on where to seek assistance pre-design of material on how to deal with damaged property. Business continuity planning should be encouraged to ensure rapid restoration of function and supply, and to free up resources for priority recovery tasks. Response Response planning includes a range of provisions relevant to recovery planning. The most significant is the allocation of functions and tasks for response activities. In most cases, agencies will carry over these roles into recovery, changing only the reporting arrangements and the level of resource commitment. The facilities and coordination arrangements set up for response may also be available for recovery use. In preparing a Recovery Plan, the specific areas of response plans that need to be examined in detail are: impact assessment transfer of information should be planned for communications mechanisms for coordination welfare and registration. 4

10 Key Tasks and Responsibilities of the Recovery Plan The general objective of all recovery planning is to efficiently apply the resources available to the task of restoring the community to the point where normal social and economic activity may resume. The recovery process must focus on the four priorities identified in the National Civil Defence Plan, and can be broken down into 12 key tasks. Recovery Priorities The National Civil Defence Plan (Part 2) defines the priorities for recovery assistance: Safety of individuals The safety and health of all people remaining in the disaster area. Social recovery Assuring the community s material needs are met including food, accommodation and lifeline utilities. Addressing the psychological and emotional needs of the affected community. Economic recovery Facilitation of economic recovery giving the community the tools needed to commence their own economic recovery. Physical recovery Links back to reduction planning. Physical recovery must be based on long-term strategies adopting mitigation measures that prevent or reduce the effects of future emergencies. Key Tasks and Responsibilities Planning tasks under the following categories will take account of and reflect the recovery priorities outlined in the National Civil Defence Plan: 1 Transition from response 2 Management structure 3 Community involvement 4 Impact assessment 5 Data management 6 Central government involvement 7 Public information 8 Rehabilitation, restoration and assistance 9 Implementation of reduction measures 10 Financial management 11 Reporting 12 Managed withdrawal 5

11 1 Transition From Response Recovery starts while response activities are still in progress, and key decisions taken during the response phase are likely to directly influence and shape recovery. The Recovery Manager should already be named in the CDEM Group Plan, and is likely to take up the role while the emergency is still in force and the Controller is managing response efforts. The recovery phase of the emergency management process gains momentum when the state of civil defence emergency is terminated (refer to Chapter 22 of The Civil Defence Controllers Manual). At this point, the threat to life has passed, rescue activities have been completed and community safety is assured. At this stage it is important to consider the implications the termination of the state of emergency will have on activities. Not only will statutory powers cease, but some agencies and organisations whose contribution may be linked directly to the state of emergency may decide their role is over. During the response phase, many of the agencies with significant recovery roles are already heavily committed. Consequently the Recovery Manager needs to be involved in key response conferences and briefings as the most efficient way to: align response and recovery priorities connect with key agencies understand key impacts and tasks identify recovery requirements and priorities as early as possible. The other significant challenge is to get ahead of the game. Even before the state of emergency is over, most of the community links and recovery organisation need to be in place, and the process of impact assessment well underway. Transition From Response Plan to: include the Recovery Manager in critical response briefings ensure the Controller is aware of recovery requirements and tasks prior to the termination of the state of emergency ensure that agencies with both response and recovery obligations are aware of their continuing role initiate key recovery arrangements during the response phase. 6

12 2 Management Structure The prior nomination and early appointment of the Recovery Manager is critical to the success of the recovery process. Appendix A details the role, functions and desired personal competencies of a Recovery Manager. The Recovery Manager can be effective only with a support structure designed to facilitate and coordinate relief and recovery efforts. As the Recovery Manager has no specific powers, it is important to work with agencies and representatives with the authority to make things happen. During the response phase committees are formed, reporting to the Recovery Manager, to provide links into sectors of the community. Membership of these committees will vary depending on the emergency and the nature and prioritisation of tasks identified. Appropriate representation should be drawn from a wide range of relevant central and local government agencies, commercial, industrial and rural agencies, voluntary groups and the community. Communication within and between these committees is critical for coordinating tasks and rebuilding community confidence. An effective supporting administrative structure is essential. Once formed, the committees need to meet regularly to ensure the proper sharing of information and resources. The committees should continue to operate until the individual agencies are able to act on their own without negatively affecting other agencies. Sectors that need to be represented on these committees include: health (both personal and public): Medical Officer of Health, environmental health officers social and support services welfare, counselling and IRD physical infrastructure utilities, local authority asset managers and research institutions (eg, BRANZ) resource providers contractors, suppliers, consultants, local authorities, central government agencies, work schemes community links economic, commercial, rural and educational relief management churches, aid organisations, volunteer groups, Relief Funds 1. In addition, the management structure must provide for the Recovery Manager s office to carry out: administrative requirements such as minutes, record maintenance and correspondence survey/information analysis and reporting public information and media management relief management such as Relief Funds and donations of goods workforce/employment scheme arrangements such as Taskforce Green financial and non-financial management and reporting. 1 Mayoral Relief Fund is often used to designate a small continuous fund a mayor has for providing discretionary grants to those in need. A specific Disaster Relief Fund, that requires the creation of a Trust Deed and the appointment of appropriate trustees, may be established after an emergency. See Annex F to Part 2, Recovery, of the National CD Plan. 7

13 Management Structure Plan to: appoint a Recovery Manager prior to any event set up an office with administrative support form and administer representative committees to coordinate and action recovery tasks and disseminate decisions complete the impact assessment provide information to the impacted area and to the general public and media collect and distribute trust funds and aid supervise and resource workforce schemes, and meet OSH standards prepare oral and written financial and non-financial reports and briefs. 3 Community Involvement Community involvement is the means whereby those directly affected by a disaster help rebuild their own facilities and services. Community involvement provides a framework for re-establishing the economic, social, emotional and physical well-being of the affected population. The benefit of using community resources is twofold. Firstly, local agencies know the community makeup and requirements better than any outside organisation. Secondly, disaster victims have an inherent need to rebuild. Using this resource wisely can lead to a stronger, more resilient and united community. Plan for community involvement in recovery by: linking with existing structures within the community forming local disaster recovery committees, chaired by respected community leaders who can shape local opinion, exercise considerable public and political influence and promote cohesion and stability within the affected community structuring the planning process so that it is open to and encourages participation recognising the value of local knowledge and using it to identify and shape improvements to the local physical and social environment including rural representation if the farming sector has suffered significant loss using humanitarian, civic and religious organisations within the community (they have a central role during the response period and are aware of the issues involved in long-term recovery). Challenges involved in working with the community include: weighing up individual versus community good balancing local interests with those of the wider region (eg, funding allocations) minimising delays and meeting community expectations for timeliness setting priorities for restoration of the local and regional economy (such as critical infrastructural assets). 8

14 Community Involvement Plan to: work within existing community structures recruit representatives of the wider community into recovery planning develop memoranda of understanding with local community groups establish strategies for uniting the community behind the agreed objectives provide one-stop shops for advice, information and assistance during the recovery period (eg, Citizens Advice Bureaus) establish mechanisms for sharing information and reporting local initiatives (eg, regular community meetings and local newsletters). 4 Impact Assessment Impact assessment involves gaining early and accurate information about the impact of the event on individuals, the community and physical infrastructure. Impact assessment is critical to the management of an effective recovery programme and must involve all relevant agencies, working together to exchange information. Alongside council staff and others working for the Recovery Manager, other people or agencies gathering data will include: social agencies, who will be identifying people in need of immediate assistance insurance inspectors (EQC assessors processing residential property claims, and private insurance assessors) environmental health inspectors building inspectors engineers. Data-gathering techniques include inspections and surveys but information will also come from selfreporting (to council, insurers, social agencies) and the media. The quality of the recovery process depends on the quality and timeliness of impact assessment data, which will determine the allocation of resources and concentration of recovery effort. Data collection will begin during the immediate response phase of an emergency, but of necessity this has a short-term focus. In practice, data collection is often poorly managed. Agencies tend to act independently, those affected may be asked the same questions by numerous survey teams, surveys may be incomplete because of limited resources, and some surveys do not reach all those affected. While a variety of agencies will collect data for their own purposes, recovery planning has to provide for coordination of inspections, and the eventual synthesis of various reports into an overall summary. 9

15 Impact Assessment (wider managerial issues) Plan to: establish pre-event partnerships (using existing CDEM Group links) use intelligence/planning information from the response operation, and set up a recovery liaison person in the Emergency Operations Centre confirm the total area of impact to determine where to focus the survey manage the collection and collation of the required data set out the immediate information needs: infrastructure problems/status damage impact and pattern welfare issues link with parallel data-gathering work identify and close information gaps (establish the big picture ) assess the financial and insurance requirements of affected parties gather evidence to support requests for central government assistance. Inspections and needs assessments (surveys) Where possible, surveys should combine inspections (making judgements from visual checks, such as may a house be safely reoccupied) with needs assessments (which involve interviewing affected residents). To cover both in a single visit requires careful management and coordination. Some of the critical information will have been collected during response activities. Registration (the process of recovering personal details of those affected by the emergency) will have identified many of the affected people and safety inspections may have produced a list of damaged properties. Inspections and needs assessments require the adoption of clear and consistent criteria for reporting so that accurate summaries can be prepared. Building inspectors, insurance assessors and public health officers are all likely to want to make inspections. The inspection process needs to be managed to ensure that priority tasks are completed first and that coverage is completed with efficient use of resources. Surveys can be used to assist short-term recovery through: determining numbers, locations, circumstances and ethnicity of displaced and/or injured people assessing the safe occupation of buildings and their continued use, especially emergency facilities confirming the state of lifeline utilities assessing the need for temporary works, such as shoring and temporary securing of property protecting property from unnecessary demolition. Inspections and needs assessments also contribute to longer-term recovery measures through: defining personal and community needs determining the aid and resources required for permanent recovery estimating the total cost of damage acquiring engineering, scientific and insurance data to inform the disaster mitigation process. This process effectively establishes the priorities for the whole recovery process. 10

16 Inspections and Needs Assessments (technical focus) Plan to: establish and define the purpose of inspection/assessment and expected outcomes consistently apply agreed criteria (requiring a common understanding by the people undertaking the survey process) collect and analyse data establish a method/process to determine the types of information needed for this recovery operation, defining: how and who will gather the information (aim for single comprehensive survey) how information will be shared how information will be processed and analysed (see Data Management below) how the data will be verified (for accuracy, currency and relevance) establish methods of managing the process to minimise calling back select and brief staff meet Privacy Act requirements. 5 Data Management The current National Civil Defence Plan, in Part 7 Public information and Part 8 Welfare, allocates management of registries (and by implication their underlying data) to the public information function. Planners need to consider the transfer of this responsibility to the agencies continuing to work on disaster assistance. Past emergencies have demonstrated the difficulties involved when data collection and management have to be established after the event. The key planning issues are clarity about the information demands that need to be met, and adequate definition of who is responsible for which part of the data management task. Data Management Plan to: define who is responsible for which part of the data management task create templates for impact assessment and for tracking assistance provided. 11

17 6 Central Government Involvement Government involvement in recovery is outlined in Part 2 of the National Civil Defence Plan, The Recovery Plan: Natural Disasters and Emergencies within New Zealand. A disaster s impact on the community sometimes reaches a level where central government assistance is necessary. Government assistance aims to restore to communities the capacity for self-help. Government assistance will usually involve continuous demands for information on the extent of the problem and progress of the recovery phase. Government assistance may be in the form of: provision of advice (by key government agencies) provision of assistance, where: there is a statutory requirement for actions, or a need to invoke a statute to achieve the ends desired from the recovery process government assistance is essential to or will make a significant contribution to the coordination of the recovery process there are economies of scale. Consideration of existing policies in the Recovery Plan will determine the extent of government involvement in the recovery process. However, if exceptional problems or hardship can be demonstrated, the government may consider a special policy case. The Recovery Plan also makes provision for central government to contribute to a Relief Fund. Note: an emergency declaration is not a prerequisite to seeking assistance from central government under the Recovery Plan. Usually the agency for coordinating central government recovery activities is the Ministry of Civil Defence & Emergency Management. However, depending on the nature of the event, another agency may assume the lead role, such as the Ministry for the Environment, the Ministry of Agriculture and Forestry, or the Ministry of Health. Most central government involvement and assistance during the recovery phase of an emergency is delivered through a variety of normal government agency functions. It is important to develop and maintain local contacts within those agencies. Essential government contacts include: Agriculture and Forestry Health Civil Defence & Emergency Management Housing Defence Inland Revenue Economic Development Social Development Education Te Puni Kokiri Environment Transit New Zealand. Requests for financial assistance to help with the costs of recovery must be directed to the lead department/ministry who will then seek Cabinet approval. The process for seeking central government assistance for recovery funding will be addressed in a Ministry document currently under development. There is provision within the CDEM Bill for the Minister to appoint a Recovery Coordinator when the CDEM Group is (or is likely to be) unable to effectively carry out recovery activities. A Recovery Coordinator can be appointed for up to 28 days, with provision for reappointment if necessary. The financial, political and social implications of such an appointment should be considered and planned for. 12

18 Central Government Involvement Plan to: establish strong relationships with key regional representatives of government agencies, and appoint them to appropriate CDEM Group working committees promote input from these agencies into local CDEM plans gain familiarity with the recovery claim process, Relief Fund applications, and reduction plan proposals establish a system for recording all expenditure during recovery, in line with the requirements of the Recovery Plan (this includes logging all expenditure, keeping all receipts and providing timesheets for all paid labour) widen the management base of the recovery operation to include a central government appointee (Disaster Recovery Coordinator) in a major event answer requests for information from government agencies. 7 Public Information Provision of public information must be deliberate, planned and sustained. Effective information management is key to rebuilding community confidence. Only with the return of confidence will the community invest in its own recovery. In the response phase public information primarily informs and reassures. In the recovery phase it is the mechanism by which the affected community and the wider public are encouraged to participate in the process of restoration and rehabilitation. Public information can reach audiences within the impact area, throughout the local area, across the nation and internationally. Success in recovering from the emergency event hinges on cooperation, agreement of priorities and a willingness of all parties to acknowledge the greater good. Public information continuity The public information function should continue even when the response phase is ending, lives are no longer at risk, and the state of emergency is over. The focus might change but the purpose of maintaining the flow of information remains. Managing public expectations Those affected and the public at large cannot be expected to understand the challenges faced by a Recovery Manager who, with only limited resources and without any statutory powers, will be attempting to coordinate the whole recovery effort. Prior agreements and planned press releases will serve to inform and to pre-empt unrealistic expectations. Coordination of public information messages Every agency participating in the recovery process will have a responsibility to communicate with their customers. Joint information centres, joint or agreed press releases and agreement on key messages will facilitate the process and provide a better service to those affected. There must also be agreement among agencies about who acts as spokesperson in what context. 13

19 Role of politicians Both national and local politicians will play key communication roles in providing information and participating in briefings. They will also have a role as spokesperson from time to time. Communicating change Where recovery priorities or actions are likely to be controversial, those affected have the right to learn about it firsthand and to participate in the decision-making process. Face-to-face communication will be essential. Both public meetings and private meetings with impacted residents/organisations will be required. Managing media interest Using experienced media liaison or communications personnel will limit the potential for problems. Honesty, accessible personnel, respect for timelines, regular press releases, using a single spokesperson, coordinating the communication of key messages, and using joint information centres (multi-agency coordination) will all assist with media management. Electronic media such as websites (hosted by local government and participating agencies) and internet news sites need to be utilised. Providing answers to frequently asked questions on an advertised website is an excellent public information tool. Any potential impact on tourism must be acknowledged. Specialist media liaison may be required to take the heat out of this issue. Feedback Information provision must be part of a two-way process where the expectation is not only that people will receive and process information, but that they will have the opportunity to interact with it and provide feedback. This closes the loop on ownership (or otherwise) of recovery decisions. Countering misinformation Misinformation whether rumour, speculation or media inaccuracies can derail recovery activities and cooperative undertakings. Monitoring arrangements are required both formally (media outlets) and informally (local gossip). Timely press releases, talkback radio, buying advertising space/media time, posting information to a designated website and utilising local networks (churches, schools, marae, etc) are all useful ways to keep accurate information in the public arena. Relief arrangements Public information is important in: making public appeals for donations and/or assistance informing people how to access relief aid, whether via government agencies or charitable organisations. Special needs Consideration must be given to: communicating with non-english speaking communities cultural sensitivities special needs of the elderly, infirm or disabled. 14

20 Public Information Plan to: train potential spokespeople to deal with the media manage public information during the transition from response to recovery identify priority information needs develop a comprehensive media strategy assess the language needs of the affected community coordinate public information eg, through: joint information centres bringing together the media personnel of participating agencies spokesperson/s identifying and adopting key message priorities using a single publicised website for all press releases develop processes for: media liaison and management (all forms eg, print, broadcast and electronic media) briefing politicians alternative means of communication eg, public meetings, mailbox fliers, advertising communicating with community groups meeting specialist needs formatting press releases developing and maintaining a website ensuring feedback is sought, integrated and acknowledged monitor print and broadcast media, and counter misinformation. 8 Rehabilitation and Assistance Recovery efforts after an emergency event will not ensure a speedy return to normal. The pre-event status quo may not be possible to re-establish and the recovery effort must focus on restoring the functions of affected communities. Formal recovery arrangements may be scaled down or terminated as the community regains the means to manage its own affairs, even though some assistance issues still remain to be resolved. Assistance begins with the basic necessities of life food, clothing, shelter and health and hygiene needs. Rehabilitation is about empowering individuals, families and communities to rebuild the social fabric of the local economy. A return to the normal structures of governance at the local and regional level is a foundation stone in restoring confidence and provides the mechanism for participation in recovery decision-making. Rehabilitation and restoration priorities should be based on a comprehensive knowledge of the community s expectations and available resources. 15

21 Priority considerations for rehabilitation Restoration of essential services Allocation of limited resources Aid management Ongoing welfare requirements Health issues Law and order, including security Communications Transport, including the status of all roads, rail, seaports and airfields Utilities Business/commercial sector requirements Rural residents and agricultural needs Residential property damage Social concerns, including psychological impacts and stress symptoms Recovery of educational establishments and review of their use during response phase. Issues associated with rehabilitation Acceleration of pre-event economic trends will the community continue to prosper or regress? Prioritisation (domestic vs commercial vs agricultural) population density is likely to capture and determine prioritisation Reoccupation of marginal lands quality of data and analysis provided to the decision-makers will be crucial Prolonged welfare assistance Political will to acknowledge liability or to accord special funding The need for clarity with regard to insurance issues Difference of expectations between central, regional and local government Restoration to what level? Is it affordable? Is it a priority? Is it legal? Determining who pays. 16

22 Rehabilitation and Assistance Plan to: establish a mechanism for receiving expert technical advice from Lifeline Groups provide critical infrastructure prioritise recovery assistance prioritise public health to restore health services and infrastructure assist businesses to re-establish and reopen restore community and cultural infrastructure (including education facilities) restore basic civil amenities for meetings and entertainment prioritise rural recovery provide emergency financial assistance (through Social Welfare, bank loans, special subsidies) establish Disaster Recovery Employment Schemes adjust capital works programmes. 9 Implementation of Reduction Measures Measures taken during the reduction and readiness phases can include preparatory work to make the recovery process faster and more effective. Sound reduction planning will contribute to recovery as much as it does to response. The CDEM Bill includes new measures to reduce hazards and risks as a required recovery activity. Every emergency affords the opportunity to rethink the options for hazard and risk reduction, which may include: suspending or amending capital works programmes to reflect recovery priorities for restoration and removal rezoning or not reoccupying marginal lands considering present/future pressures already identified in the CDEM Group Plan hazard analysis covering: risk frequency consequences perceptions. The key issue or challenge will be the pressure for rapid reinstatement of services and facilities (which will by necessity often mean replicating the status quo), versus providing for longer-term viability (ie, not replicating the risk). Further challenges, during pre-event planning and recovery, can include: public pressure to reoccupy hazardous locations encouraging politicians to avoid unpopular decisions (this can lead to the redevelopment of high risk locations, increasing the pressure on emergency management planning) 17

23 political opposition to the active communication of risks because of fear of litigation and land devaluation issues associated with: existing use rights constraints (any restriction on rebuilding for the same use as before the event requires consistency between district and regional plans, to avoid legal challenge under s20 of the Resource Management Act 1991) demolition heritage status insurance considerations (repair/reconstruction/removal). Reduction Plans must already be agreed and in place or the reduction measures will not proceed. Implementation of Reduction Measures Plan to: take the opportunity, while doing the hazard analysis, to: identify essential services and facilities in high-risk areas, then consider the restoration options in the event of their becoming dysfunctional record information within the Recovery Plan on possible alterations to capital work programmes, pre-event consent preparation, Business Continuity Plans, and alternative providers develop consistent restrictions on rebuilding in district and regional plans identify options based on research and consultation represent all players (central government, Crown Research Institutes, industry groups) undertake urgent hazard reassessment based on new (event) information adhere to a regional Reduction Plan. 10 Financial Management Sound financial management is essential for maintaining the momentum of the recovery effort and promoting public and central government confidence in the regional recovery effort. The goal should be to facilitate an efficient return to economic and community normality through informed rather than ad hoc or reactionary decision-making. Financial management in the recovery phase includes the acquisition and distribution of funds, as well as accounting for these funds. It should ensure: streamlining of financial processes cooperation between public and private sectors appropriate levels of financial response. Acquisition covers all sources of recovery funding and financial assistance (income) relating to: existing (reassigned/reprioritised) budgets savings and reserves insurance payments credit facilities loans or debt funding central government financial assistance (received through recovery claim process) grants domestic and foreign aid. 18

24 Refer to Part 1 Response, Part 2 Recovery, and Part 9 Logistics, of the National Civil Defence Plan Distribution covers all recovery expenditure, including distribution of relief trust funds, for which the CDEM Group members are responsible. Accounting covers the processes required to record income and expenditure assigned to the recovery process and for which CDEM Group members are accountable. Financial management during the recovery phase raises a number of challenges, including making provision for: an emergency financial strategy (a back-up financial plan, retaining rating capacity, and provisions to divert funds) capacity to revisit planning priorities prior review and establishment of borrowing capability (including lines of credit) use of reserves establishment of a relief trust fund the central government recovery claim process. Financial Management Plan to: review financial strategies communicate with financial agencies, including insurance companies keep financial processes transparent. 11 Reporting The purposes of reporting are to maintain accountability and transparency, to keep the wider community informed, to gain support and assistance and to record an account of recovery efforts, including lessons learned. Regular and thorough reporting of an emergency event, and of the recovery phases following an event, will provide the CDEM Group with justification of actions taken and money spent to: the community affected by the emergency ratepayers taxpayers the public at large (through the media) central government if there are requests for physical assistance (eg, from Taskforce Green or Defence Force) or financial assistance (requests for a donation to a Mayoral Relief Fund, for a Recovery Coordinator, or for recovery funding assistance). A reporting system needs to cover the emergency event from its beginning through to the final stages of recovery. Early in the recovery process, a timeline should be developed which states when each formal report is due, and a folder prepared of agreed reporting formats. Reporting will be carried out by a variety of people during the emergency, often when there is a lot of action, when it is stressful, and in a variety of locations. The Controller may not be at a desk with a computer to file an update report during an event. 19

25 Reporting systems must therefore be flexible, simple and succinct and have necessary administrative assistance when required. As one type of reporting will not fit all situations, reporting systems should be event-specific. The key people who will need to file regular reports are the Controller (while the state of emergency is in place), the Recovery Manager, and the CDEM Group. It is also advisable that someone (an accountant or similar) keeps track of all expenditure. As well as keeping a precise record of when the state of emergency was declared, and when it is terminated, regular reporting on the state of the following should take place: welfare utilities public health agriculture adequacy of local resources business external assistance environment transport Maori issues communications private property damage The formats, topics covered and frequency of reporting should be discussed in the CDEM Group Plan, but it is likely that the finer details will be decided by the Controller or the Recovery Manager when the terms of reference are established. Coordinating production and ensuring retention of copies of all reports produced (especially by the various agencies) is an important management task. The sum of all the reports will provide a record of the recovery from the event. Reporting Plan to: provide a simple, flexible and succinct reporting system prepare formats for common reports train people filing reports provide adequate administrative support. 12 Managed Withdrawal The recovery phase must have an end. Organisational arrangements must be wound down and responsibility for completion of outstanding tasks and actions assigned and acknowledged. The recovery phase involves restoring the community to the point where normal social and economic activity may resume. Withdrawal of formal recovery structures from the impacted community must be planned and staged. Consider Who, Why, When, and Where: Who: Why: The recovery management and the supporting organisational structure. To ensure businesses and residents take control of their community s return to normal functionality. When: As soon as possible. Withdrawal must be planned into every task and action. Long-term recovery measures may require a project process to ensure that the project delivers as planned, but responsibility for monitoring such actions should be built into everyday organisational governance arrangements that assume responsibility from the outset. 20

26 Where: In the public arena. The community needs not only to know that the level of support is being reduced, but to participate in these decisions. An event of some kind should be planned to acknowledge what they have suffered (and survived), what has been achieved, what remains to be done and the process for ensuring that it will happen. Managed Withdrawal Plan to: continually review the recovery management process with a view to withdrawing as the community takes over stage a public event of acknowledgement and closure. 21

27 22

28 Appendix A Appointing a Recovery Manager The CDEM Group should select, appoint and train a Recovery Manager prior to an emergency rather than await the event and appoint a person to manage the recovery when needed. These guidelines and the attached job description are for use when the CDEM Group appoints a Recovery Manager before the event. Operational Context The environment within which the Recovery Manager will operate differs considerably from that of the Controller. Specifically, the Recovery Manager: has no statutory powers unless delegated by specific agencies must acknowledge that actions will be undertaken by business as usual governance agencies will be coordinating activities across a range of public and private agencies must prioritise recovery actions must ensure existing financial commitments are reviewed and allocations retargeted to recovery priorities must consider the long-term implications of each action must establish and maintain effective communication links with the community must contend with high (but eroding) media interest must respect the high level of political interest. Appointment Documentation The Recovery Manager can be appointed by a clause in an existing employee s employment contract, or by a standalone contract recognising duties to train and be trained, participate in planning, be available for appointment within 24 hours, and with remuneration terms agreed. Alternatively, a Recovery Manager can be appointed through a Memorandum of Understanding with another organisation, linked to an employment contract. Whichever document is adopted, it should affirm the expectations of both parties, address the issue of liability and provide the Recovery Manager with adequate indemnity. A terms of reference template, details of which will be event-dependent, should be prepared and annexed to the Recovery Plan. An example is provided in Appendix B. Criteria for Selecting a Recovery Manager The Recovery Manager will operate in a potentially hostile and complex political environment, with responsibility for allocating scarce resources and determining restoration priorities. Selection criteria must take into account not only management skills and competencies but also appropriate vetting of the nominee s personal qualities and attributes. 23

29 Historical Note: The 1931 Hawke s Bay commissioners were said to have put Napier back on its feet with compassion, efficiency, dedication and vision. Training needs Training should be addressed as part of the appointment process and a professional development programme established according to the appointee s needs. The Recovery Manager should be included in Emergency Operations Centre training as appropriate. An induction programme should be developed for all newly appointed Recovery Managers. Terms of reference The Recovery Manager s terms of reference will define in the broadest terms their key responsibilities. In addition to these the Recovery Manager will have a series of basic functions that should form part of the Recovery Manager job description (see opposite). 24

30 Recovery Manager Job Description CDEM Group Job Title: Group Recovery Manager Location: Reporting To: Group Controller (while a declared state of emergency is in force) As determined by CDEM Group (after the declared state of emergency has been terminated) Direct Reports: Administrative staff Various committees as determined by the management structure required by the event Authorisation The Group Recovery Manager may be appointed prior to any emergency event. The position does not carry any statutory powers, unless delegated by specific agencies, and the Group Recovery Manager remains answerable to the Group Controller while a declared state of emergency is in force. The terms of reference will be shaped by the particular event. The Group Recovery Manager should be available for appointment within 24 hours of a declared state of emergency. Description The CDEM Bill requires local authorities to coordinate through regional groups planning, programmes and activities related to civil defence emergency management across the areas of reduction, readiness, response and recovery, and encourage cooperation and joint action within these regional groups. As well as coordinating through regional groups the CDEM Groups must provide for the planning and preparation for emergencies and for response and recovery in the event of an emergency. Clause 17 of the CDEM Bill states that the CDEM Group functions include carry out recovery activities. Purpose of Position The Group Recovery Manager s role is to facilitate and coordinate the short/medium term recovery activities for the affected community/communities within the CDEM Group. 25