Welfare in an Emergency Director s Guideline for Civil Defence Emergency Management Groups [DGL 11/10]

Transcription

1 Welfare in an Emergency Director s Guideline for Civil Defence Emergency Management Groups [DGL 11/10] Resilient New Zealand Aotearoa Manahau

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3 Welfare in an Emergency Director s Guidelines for Civil Defence Emergency Management (CDEM) Groups [DGL 11/10] ISBN: May 2010 Version 1.0 Authority This guideline has been issued by the Director of Civil Defence Emergency Management pursuant to s9(3) of the Civil Defence Emergency Management (CDEM) Act It provides assistance to CDEM Groups in the development of welfare plans and arrangements. The Ministry of Civil Defence & Emergency Management (MCDEM) consulted with CDEM Groups and welfare agencies in producing this guideline. 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 MCDEM, is available at Ministry of Civil Defence & Emergency Management PO Box 5010 Wellington New Zealand Tel: Fax: emergency.management@dia.govt.nz Welfare in an Emergency [DGL 11/10] 1

4 Contents Foreword... 3 Executive summary... 4 Introduction... 5 Acronyms and abbreviations used in this guideline... 6 PART I: Welfare management... 7 Section 1: Welfare in an emergency... 8 Overview of welfare... 8 Welfare framework...11 Activating welfare support...13 Welfare agencies...15 Section 2: Local level welfare Overview of local level welfare Local Welfare Manager...19 Local Welfare Committee...21 Recovery centres...22 Section 3: CDEM Group level welfare...23 Overview of CDEM Group level welfare...23 Group Welfare Manager...26 Welfare Advisory Group (WAG)...28 WAG Chair...29 Section 4: National level welfare...31 Overview of national level welfare...31 National Welfare Coordination Group...32 Section 5: Welfare management templates and links...34 Local welfare plan structure...34 Government Helpline information template...35 Online resources PART II: Establishing and managing a welfare centre...39 Section 6: Welfare centres...40 Overview of welfare centres...40 Sections of a welfare centre...42 Layout of a welfare centre...44 Welfare centre activation procedure...45 Staffing a welfare centre...46 Welfare centre resource kit Section 7: Welfare centre checklists...48 Local Welfare Manager checklist...48 Welfare centre supervision...50 Welfare centre assistance...52 Reception...54 Registration...56 Catering...58 Clothing...60 Accommodation...62 Public information...64 Social services...66 First aid...68 Animal welfare...70 Communications...73 Volunteer coordination Security...78 Entertainment...80 Welfare centre information sheet Welfare in an Emergency [DGL 11/10]

5 Foreword Providing for the welfare of people is a fundamental part of the response to, and recovery from, an emergency. People affected by an emergency will need welfare support including food, shelter, clothing, financial assistance and psychological and social support. We are not going to be accused of looking after our buildings and roads but not our people! This guideline has been published in accordance with my responsibility under section 9(3) of the Civil Defence Emergency Management Act to assist the 16 regional CDEM Groups, their member territorial authorities and partner agencies, plan and arrange regional and local welfare. Successful welfare arrangements will ensure that people get information and easy access to the services they need during and after an emergency. That success can only come if welfare arrangements are well planned before an emergency occurs. Part of that planning means coordinating the work done by the many government and nongovernment organisations likely to be involved. This guideline provides an overview of welfare at local, regional and national levels. It then gives detailed information about how to establish and manage welfare centres. Included are templates, checklists, information about services and organisations, links to websites and references to important documents. It is a practical guideline that should be used for planning before emergencies, and as a reference during response and recovery. The outcome we all want is well-planned welfare arrangements that are delivered effectively during the response to an emergency and continue in the aftermath to help speed up recovery in the affected communities. John Hamilton Director of Civil Defence Emergency Management Welfare in an Emergency [DGL 11/10] 3

6 Executive summary The intention of this guideline is to provide practical information for organisations with Civil Defence Emergency Management (CDEM) responsibilities in the area of welfare provision. This guideline defines welfare in a CDEM emergency and explains why and when it is needed. It also describes who is responsible for welfare and how it is best managed and most effectively delivered. This guideline contains conceptual and functional arrangements to support delivery of welfare in New Zealand and is comprised of two parts: Part I: Welfare management outlines the framework and processes that provide structure for the local delivery, and regional and national support and coordination of welfare services in an emergency. Specific roles at the local, regional and national levels are described. Part I is aimed at the CDEM sector and welfare agencies with responsibilities for welfare services under the National Civil Defence Emergency Management Plan. Part II: Establishing and managing a welfare centre identifies the functions, roles and arrangements in a welfare centre. Part II is aimed at local level welfare and details the main sections of a welfare centre and the key operational staff required. This guideline is intended to inform the development, maintenance and review of welfare plans and arrangements. It is recommended that territorial authorities, CDEM Groups and partner agencies review their welfare plans and arrangements in light of this document. This guideline has been written to be read alongside the National Civil Defence Emergency Management Plan and the Guide to the National Civil Defence Emergency Management Plan, where the strategic responsibilities, nationally and operationally, regarding welfare in an emergency are formally outlined. See also: Recovery Management Director s Guidelines for CDEM Groups [DGL4/05]; Focus on Recovery: A holistic framework for recovery in New Zealand, Information for the CDEM Sector [IS5/05], and Mass Evacuation Planning Director s Guideline for CDEM Groups [DG 07/08]. 4 Welfare in an Emergency [DGL 11/10]

7 Introduction Purpose of this guideline The purpose of this document is to provide a common understanding and practical guidance about frameworks and arrangements for delivery of welfare in an emergency for organisations with Civil Defence Emergency Management (CDEM) responsibilities. The guideline provides assistance for CDEM Groups, their member territorial authorities and partner agencies to plan and arrange their regional and local welfare effectively. Focus of welfare provision As described in this guideline, the focus and nature of welfare planning and provision at the CDEM Group (regional) level is different to the territorial authority (local) operational level. Unitary authorities will need to adapt the guidance given to suit arrangements in their areas. CDEM Group level: multi-agency plans will be in place to coordinate and support response and recovery activities Local level: territorial authority-led CDEM arrangements and plans will focus on the more immediate and community-based service delivery side of response and recovery. Agencies with welfare functions will have their own plans and arrangements for the delivery of their essential services to individuals, families/whanau and communities focusing on the mid to longer term. In an emergency, these responses need to be coordinated with partner agencies through the respective local Emergency Operations Centre (EOC) or CDEM Group Emergency Coordination Centre (ECC). How to read this guideline This guideline is written so that wherever possible (unless it best serves the reader to have it included) information is not duplicated. In order to achieve this, other documents have been referenced throughout. Paragraph titles (to the left of the text, as below) provide a key to the content of the paragraph, for quick referencing and ease of reading. Here is an example of how other documents are referenced in this guideline. Paragraph title See this section of the CDEM Act Refer to other documents for more information Mandate Refer to s 85 of the CDEM Act 2002 Refer to s 12 of the Guide to the National CDEM Plan S 85 Emergency Powers of Civil Defence Emergency Management Groups (1) While a state of emergency is in force in its area, a Civil Defence Emergency Management Group may (d) provide for the relief of distress, including emergency food, clothing, and shelter The specific requirements for welfare are outlined in the Guide to the Na tional CDEM Plan (including specific National CDEM Plan clauses related to welfare). Welfare in an Emergency [DGL 11/10] 5

8 Acronyms and abbreviations used in this guideline 4Rs CDEM CDEM Group CIMS DESC DHB ECC EMO EOC LA LWC MCDEM MOU NCMC NGO NWCG ODESC PIM Sitrep SOPs Reduction, Readiness, Response, Recovery Civil Defence Emergency Management A consortium of local authorities, emergency services and their partner agencies. Coordinated Incident Management System System of Domestic and External Security Coordination District Health Board Emergency Coordination Centre (CDEM Group level) Emergency Management Officer employed by the regional or local (city or district) council Emergency Operations Centre (local level). Local Authority a regional council or territorial authority (includes regional, city and district councils, and unitary authorities) Local Welfare Committee (local level) Ministry of Civil Defence & Emergency Management Memorandum of Understanding National Crisis Management Centre Non-Government Organisation National Welfare Coordination Group Officials Committee for Domestic and External Security Coordination Public Information Manager or Public Information Management Situation report issued periodically from a welfare centre and the EOC during the response, provides a snapshot of the emergency at the time Standard Operating Procedures detail the procedures and other activities in a welfare centre and the EOC The CDEM Act Civil Defence Emergency Management Act 2002 URL WAG Welfare Uniform Resource Locator - the global address of documents and other resources on the Internet (e.g. Welfare Advisory Group (CDEM Group level) In this guideline, welfare refers to welfare in an emergency 6 Welfare in an Emergency [DGL 11/10]

9 PART I: Welfare management Introduction Part I of this guideline outlines the framework and processes that provide structure for the local delivery, and regional and national support and coordination of welfare services in an emergency. Specific roles at the local, regional and national levels are described. Part I is aimed at the CDEM sector and welfare agencies with responsibilities for welfare services under the National Civil Defence Emergency Management Plan. Part I of this guideline contains the following sections: Section 1: Welfare in an emergency Section 2: Local level welfare Section 3: CDEM Group level welfare Section 4: National level welfare Section 5: Welfare management templates and links Welfare in an Emergency [DGL 11/10] 7

10 Section 1: Welfare in an emergency Overview of welfare Definition Refer to s 12 of the Guide to the National CDEM Plan The term welfare means the response the CDEM sector and their welfare partner agencies will deliver to those people (individuals, families/whanau and communities) directly affected by an emergency. This includes provision of food, shelter, clothing, financial assistance, psychosocial (psychological and social) support and extends throughout response and recovery. Further explanation Welfare response is a coordinated action undertaken by government and nongovernment social service agencies and organisations (referred to as welfare agencies in this guideline) to ensure individuals, families/whanau and communities affected by an emergency have information on, and easy access to, the range of services available to or needed by them. It may include the collection and assessment of social impact information to support an appropriate social response. Successful delivery of welfare requires prior understanding of risks and community vulnerabilities in order to adequately reduce, prepare for, respond to and recover from emergencies. Welfare in action The model below shows an overview of welfare delivery in emergency. CDEM has the overall responsibility for the provision of welfare services to affected individuals, families and communities. Central to successful welfare delivery is the integration of welfare activities at all levels. Delivery is focused at the local level, and is coordinated and supported at regional and national levels when the need for coordination and support is identified. CDEM GROUP Local Welfare Committee Welfare Advisory Group National Welfare Coordination Group Impacted community Informs DELIVERY LOCAL (EOC) Informs Coordination and support REGIONAL (ECC) Informs Coordination and support NATIONAL (NCMC) Figure 1: Decentralised model of welfare in response Welfare services are delivered by social/welfare agencies that CDEM has agreed arrangements with and that, together with CDEM, form the Local Welfare Committee (LWC). Usually these same agencies are represented at the regional level, on the Welfare Advisory Group (WAG) and at the national level, on the National Welfare Coordination Group (NWCG) to ensure the coordinated local delivery of welfare. It needs to be noted that agencies have different roles at different levels, e.g. a focus on delivery of welfare services at the local level and coordination at the regional and national levels. 8 Welfare in an Emergency [DGL 11/10]

11 Overview of welfare Welfare in action continued Information on community needs is captured at the local level. Most of these needs are addressed during the initial response. In larger emergencies when the local capacity for welfare service delivery is exhausted and the need for additional resources is identified, the information flow upwards ensures that coordinated action is taken by the WAG (or the NWCG during an emergency of national significance) who secure the provision of additional resources. This occurs in an integrated manner with regional/local services. Responsibility Government, whether local or central, has a social responsibility to individuals, families/whanau and communities for their wellbeing; a responsibility to support them if they are affected by an emergency. The government works in partnership with nongovernment and volunteer organisations to fulfil this task. At the local level, the responsibility for the delivery of welfare services to those people affected by an emergency lies with the territorial authority. In an emergency, local welfare services are delivered by agencies on the Local Welfare Committee (LWC), coordinated by the Local Welfare Manager, under the direction of the Local Controller (or the coordination of the Local Recovery Manager during Recovery). LWC activities may be carried out by a collection of agencies working together rather than as a formal committee. The delivery of welfare is supported by the CDEM Group via regional coordination when the emergency affects more than one territorial authority (or the circumstances of the event are such that the delivery of welfare requires regional coordination and support). At the regional level the Welfare Advisory Group (WAG) is responsible for planning and coordinating welfare services. The Group Welfare Manager is responsible for coordinating activities under the direction of the CDEM Group Controller (or the coordination of the Group Recovery Manager during Recovery). Unitary authorities Welfare service delivery and coordination functions may be carried out at the same level in a unitary authority, i.e. Group and Local Welfare Manager roles may be combined. Agency representation on the LWC/WAG and consequent welfare service activity is also collaborative across the unitary authority area. National level support is invoked where an emergency that requires national coordination and support occurs. At the national level, the National Welfare Coordination Group (NWCG) is responsible for planning and coordinating provision of welfare services under the direction of the National Controller (or National Recovery Manager during Recovery). Mandate Refer to s85 of the CDEM Act Emergency Powers of Civil Defence Emergency Management Groups (1) While a state of emergency is in force in its area, a Civil Defence Emergency Management Group may (d) provide for the relief of distress, including emergency food, clothing, and shelter Refer to s12 of the Guide to the National CDEM Plan The specific requirements for provision of welfare are outlined in the National CDEM Plan and the Guide to the National CDEM Plan (including specific National CDEM Plan clauses related to welfare). In addition, the operating legislation for government agencies working in welfare delineates responsibilities of respective organisations. continued on next page Welfare in an Emergency [DGL 11/10] 9

12 Overview of welfare Holistic approach to welfare Refer to s2 of Focus on Recovery [IS5/05] Central to the successful delivery of welfare is the need to comprehensively address all aspects of community wellbeing (represented by the middle oval in the diagram below). Whereas traditionally addressing social (that is safety and wellbeing, welfare and health) aspects has been considered as the core activity in community welfare, it is now recognised that the natural, built and economic aspects are equally important for community wellbeing. Welfare in an emergency endeavours to deliver on all of these in a holistic way. Social environment Natural environment Community Built environment Economic environment Figure 2: Integrated & Holistic Approach to Recovery Further information about the holistic approach to welfare and the four environments can be found in the publication Focus on Recovery, A holistic framework for recovery in New Zealand, Information for the CDEM Sector [IS5/05]. 10 Welfare in an Emergency [DGL 11/10]

13 Welfare framework Introduction This section outlines the principles, framework, arrangements and processes that enable delivery of welfare-related activities. Welfare is described in terms of the 4Rs of comprehensive risk management, namely Reduction, Readiness, Response and Recovery. The framework for welfare The following diagram illustrates the generic welfare framework in New Zealand. Local, regional (CDEM Group) and national level welfare operational structures and strategic level arrangements are shown. The roles and entities depicted in the framework represent welfare arrangements which are described further in relevant sections of this guideline. CDEM GROUP LOCAL EOC/Local Recovery Office Local Welfare Manager Local Welfare Committee Local level welfare agencies REGIONAL ECC/Group Recovery Office Group Welfare Manager Welfare Advisory Group Regional level welfare agencies NATIONAL NCMC/National Recovery Office NCMC Welfare Coordinator National Welfare Coordination Group National level welfare agencies STRATEGIC Director of CDEM Minister of Civil Defence ODESC DESC CE of Ministry of Social Development Minister of Social Development and Employment Figure 3: Generic welfare framework Reduction In the welfare context, risk reduction is used in relation to reducing community needs for provision of welfare. This implies the use of risk-based assessment to ensure appropriate understanding of the consequences of hazards and a community s exposure and vulnerability to those hazards. continued on next page Welfare in an Emergency [DGL 11/10] 11

14 Welfare framework Reduction continued Consequences that may necessitate welfare provision can be mitigated through risk reduction. Risk reduction involves taking appropriate measures, such as social and planning approaches towards reducing vulnerability and exposure, and general community resilience building. Many social agencies address community vulnerabilities through their everyday activities. Robust planning, communication and public education also contribute towards risk reduction. These activities need to occur at the local, regional and national levels. It is important that the identification and reduction of potential business risks to the successful delivery of welfare services is undertaken by local, regional and national level agencies. Every agency has a responsibility to understand the vulnerabilities, social risks and consequences they could face in an emergency and should engage in reduction activities. Readiness At the local, regional and national levels, readiness involves planning, relationship building and preparation. Welfare readiness-related activities are strongly risk-focused. It is recommended that welfare agencies plan, resource, train and exercise for the welfare response for risk scenarios of varying types and scales. Response Emergency-related welfare needs are responded to through CDEM arrangements. Existing CDEM arrangements provide for a coordinated multi agency action at local, regional and national levels. Many welfare agencies - both government and nongovernment - operate under the umbrella of CDEM. Typically CDEM coordinates the welfare assistance, which is delivered to affected communities by the welfare agencies and organisations. Coordination of, and support for, delivery of welfare services may be escalated to the regional or national level depending on the scale of the emergency. Recovery Refer to s2 of Focus on Recovery [IS5/05] Welfare is one of the key elements of the social environment during the recovery process. However, the successful social recovery of a community also depends on the successful recovery of the other three environments (economic, built and natural). Recovery is a long term process which includes the psychosocial recovery of individuals and communities. 12 Welfare in an Emergency [DGL 11/10]

15 Activating welfare support Introduction The decision to activate welfare response in an emergency is usually made by representatives of the affected territorial authorities. The triggers for activating welfare response and the way welfare provision is managed will depend on the emergency and the needs of the affected community or communities and others affected. Five levels of CDEM operation The response required of welfare at the local, regional (CDEM Group) or national level is directly related to the scale of necessary activity. Below are the five indicative levels of CDEM operation referenced against the CDEM coordination/support required for each, and what this means for welfare. Refer to s13.3 of the Guide to the National CDEM Plan for detailed explanations of the levels. Level 1 (a) level 1: single-agency incidents with on-site coordination: Local Local welfare management may be activated to coordinate care of affected individuals/ evacuees. Level 2 (b) level 2: multi-agency incidents with on-site, local coordination; these are managed by the incident controller of the relevant lead agency: Local As per Level 1 Level 3 (c) level 3: a multi-agency emergency led by an agency other than a CDEM Group, or a state of local emergency at below CDEM Group-level (district or ward); at this level, CDEM Group support and coordination will be required and may be monitored by the National Controller: Local Local emergency welfare response and coordination activated by Local Welfare Manager on instruction from or in consultation with the Local Controller. Welfare agency attendance as required at welfare centres, evacuation centres, or in the community as required. The EOC welfare desk is activated to coordinate and support delivery of welfare throughout the district. The LWC may be convened to address issues. Regional Welfare issues are identified and monitored within the ECC. The WAG may provide multi-agency welfare coordination at regional level if required in support of the ECC. National The NWCG may be activated to provide national-level coordination and support to local and regional responses, in conjunction with the National Crisis Management Centre (NCMC). continued on next page Welfare in an Emergency [DGL 11/10] 13

16 Activating welfare support Level 4 (d) level 4: a multi-agency emergency with more significant consequences than in level 3; coordination may be required between agencies or areas or both; CDEM Group-level support and coordination is required; the actual or potential need for a declaration of a state of local emergency by a CDEM Group requires consideration; national monitoring will occur and national support is available: Local As per Level 3. Regional Welfare issues, resource requirements and priorities identified and coordinated within the ECC. The WAG actively provides multi-agency welfare coordination at regional level in conjunction with the ECC. The ECC coordinates (and the WAG provides input into) regional public information during (welfare) response and recovery. National The NWCG may be activated to provide national-level coordination and support to local and regional responses. The NWCG works to NCMC priorities and direction. Level 5 (e) level 5: a state of national emergency exists or the civil defence emergency is of national significance; at this level, coordination by the National Controller will be required. Local As per Level 4. Regional As per Level 4. National The NWCG supports the NCMC through coordination of: allocation of national (welfare) resources inter-regional movement of (welfare) resources, and the NWCG contributes towards national public information during (welfare) response and recovery activation, coordinated by the NCMC. The Officials Committee for Domestic and External Security Coordination (ODESC) provides strategic guidance on the emergency. Additional comments It is important to recognise that the levels of CDEM operation: do not equate to, but are relevant to, the status of EOC/ECC activation, may differ across CDEM Groups in New Zealand, and may differ across agencies. See individual CDEM Group plans and Annex A of Declaration, Director s Guidelines for CDEM Sector [DGL 05/06] for a depiction of the alignments between levels of engagement across CDEM Groups and agencies when managing emergencies. 14 Welfare in an Emergency [DGL 11/10]

17 Welfare agencies Introduction The following is a list of agencies and organisations that contribute to welfare. While not exhaustive, the list represents the desired level of representation from agencies at the local, regional and national level. Agencies Local level representation 1 Regional level representation National level representation Accident Compensation Corporation (ACC) Department of Internal Affairs (DIA) Earthquake Commission (EQC) Housing New Zealand Corporation (HNZC) Inland Revenue (IRD) Ministry of Civil Defence & Emergency Management (MCDEM) Ministry of Agriculture and Forestry (MAF) MAF Rural Support Trusts Ministry of Education (Schools) Ministry of Health District Health Board (DHB) and/ or local health providers) (DHB) Ministry of Social Development (MSD) Child Youth and Family MSD Work and Income New Zealand Red Cross Royal New Zealand Society for the Prevention of Cruelty to Animals (RNZSPCA) Salvation Army St John Te Puni Kōkiri (Iwi) Territorial authority representation Victim Support 1. In addition to the agencies listed in the table, representation at the local level also includes any non-government organisation or community group that can contribute to the planning and delivery of welfare services for the community. continued on next page Welfare in an Emergency [DGL 11/10] 15

18 Welfare agencies Supporting agencies Supporting agencies include: National: Department of Labour New Zealand Police, and Ministry of Foreign Affairs and Trade Regional/local: Non-government organisations (NGOs) and representatives from community groups or other committees and trusts (e.g. Rural Support Trusts) Additional comments Each contributing agency and the level of their contribution is dependent on arrangements made by the CDEM Group or local authority, and the relationship that exists with these agencies. There may be a difference in representation/membership on LWCs and WAGs during the different phases of an emergency. Some events require different agencies to lead the response/recovery (e.g. Police, Ministry of Health, or Ministry of Agriculture and Forestry). During these events arrangements for welfare provision remain the same. 16 Welfare in an Emergency [DGL 11/10]

19 Section 2: Local level welfare Overview of local level welfare Introduction Delivery of welfare services occurs at the local level. The planning and delivery of welfare services to individuals and communities affected by an emergency, including specific arrangements with agencies providing welfare service, is managed by the Local Welfare Manager of the associated territorial authority. It is essential that the arrangements for delivery of welfare at the local level are clear and put in place before an emergency occurs. Reduction All welfare-related planning across the 4Rs, including the identification of risks and the strategies for managing and mitigating those risks, needs to be undertaken at the territorial authority level. This includes the LWC and/or each of the participating agencies on it. Alignment with community development plans and activities is also recommended. In the welfare context, reduction is predominantly about ensuring that the agencies and organisations involved, as well as the communities they serve, are as resilient as possible to the impacts of the hazards that they, and those communities, are exposed to. Readiness Territorial authorities have a responsibility to all welfare agencies for ensuring that welfare delivery is planned and coordinated. In doing so, they must take into account the vulnerabilities existing within their communities. In order to continue to deliver welfare services during an emergency, welfare agencies are expected to have comprehensive business continuity plans in place. Territorial authorities support welfare agencies to identify gaps and risks and ensure that agencies are able to fully provide welfare services to communities in an emergency. This is achieved through coordinated welfare planning. The Local Welfare Manager ensures that local welfare agencies/an LWC is convened as needed to ensure that integrated planning for the delivery of welfare services occurs. The agencies represented locally/on the LWC need to understand the expectation that welfare services are required to be delivered seamlessly. Welfare service delivery needs to be informed by planning, training and exercising, and requires building and strengthening relationships with and between welfare agencies. Volunteers, welfare managers, agency staff and others involved in the delivery of welfare services and the establishment of welfare centres should participate in training and exercises. Response The nature of delivery of a local welfare response to the community needs to be adapted to suit the community and the nature of the emergency. This may involve the direct delivery of welfare services to individuals and families/whanau affected by an emergency (such as mobile services) or through the establishment of community facilities such as welfare centres or evacuation centres. Not all agencies represented on the LWC may be involved in any one emergency it depends on the scale of emergency, welfare needs and local circumstances. continued on next page Welfare in an Emergency [DGL 11/10] 17

20 Overview of local level welfare Recovery Refer to: s25 and s of the Guide to the National CDEM Plan; and also Parts 3 and 9 of Recovery Management [DGL 4/05] Transition from response to recovery The welfare arrangements activated/put in place during response need to be coordinated to ensure continuity of service to the affected community, through the transition to recovery. This includes undertaking needs assessment of people to understand the long term impacts on communities. Exit strategy Coordinated welfare services are to be delivered until an agreed exit strategy from recovery is implemented. See Recovery in Overview of CDEM Group level welfare, Section 3 of this guideline. Additional comments The Local Welfare Manager may be supported by EOC staff performing activation and ongoing tasks as appropriate to the nature of the event. The Chair of the LWC is usually the territorial authority Local Welfare Manager. If the territorial authority does not have a dedicated Local Welfare Manager it must ensure through alternative means that the welfare function and associated responsibilities are being met. Local and Group Welfare Managers report using the New Zealand Coordinated Incident Management System (CIMS) protocols as appropriate to the EOC/ECC structure. Members of LWCs and WAGs need to have an understanding of CIMS to ensure a common operating picture. Appropriate training in CIMS should be arranged by the territorial authority or CDEM Group. Consolidated action plans need to be developed, taking into account the roles and responsibilities of all agencies. 18 Welfare in an Emergency [DGL 11/10]

21 Local Welfare Manager Introduction The Local Welfare Manager is the person responsible for managing the delivery of welfare services to affected individuals, families/whanau and communities at the local level during an emergency. Some territorial authorities may not have a dedicated Local Welfare Manager preemergency. In these cases, the welfare function and associated responsibilities still need to be managed by a territorial authority representative. These representatives will need to work closely with the Emergency Management Office in their territorial authority. Reporting In a local level emergency, the Local Welfare Manager reports directly to the Local Controller. The Local Welfare Manager also liaises with the Local Recovery Manager. In an emergency that includes CDEM Group level coordination, the Local Welfare Manager liaises with the Group Welfare Manager. In an emergency that involves national level support, Local Welfare Managers will continue to report as above. Responsibilities and tasks The following outlines the recommended responsibilities and tasks carried out by the Local Welfare Manager pre-emergency, during and post-emergency. Each emergency is different and the delivery of welfare services may vary as a result. The tasks listed below are generic and may need to be revised for the particular circumstances of each emergency. Responsibility s Pre-emergency The Local Welfare Manager ensures arrangements are in place with local level welfare organisations for welfare delivery during an emergency. The Local Welfare Manager: Plans for the local welfare response to an emergency. Convenes the LWC, when appropriate. Builds relationships with all local Welfare stakeholders: Emergency Services (including DHBs if not covered at CDEM Group level) NGOs Local Emergency Welfare Committee and member agencies, and Communities. Seeks to understand the needs of the local environment/community, particularly the vulnerable and those at risk. Develops and maintains welfare plan(s). Facilitates appropriate welfare training exercises for all local welfare stakeholders, staff and volunteers. Ensures that all contact lists are up to date and accessible. Maintains an understanding of government financial support for emergencies. continued on next page Welfare in an Emergency [DGL 11/10] 19

22 Local Welfare Manager Responsibility s Emergency and Post-Emergency The Local Welfare Manager facilitates a coordinated response by implementing the welfare-related sections of EOC action plans and activating arrangements. The Local Welfare Manager: Activates and coordinates the local welfare response. Activates the LWC, if appropriate. Leads EOC welfare team assists in the development and implementation of the welfare-related sections of EOC action plans. Develops/reviews and implements welfare action plan(s). Coordinates and supports welfare centres includes tasking LWC participating agencies. Manages the collection, analysis and reporting of emergency registration data. Participates in EOC Emergency Management Team meetings Reports to Local Controller. Liaises with Group Welfare Manager (and neighbouring Local Welfare Managers regarding cross boundary issues). Liaises with Local Recovery Manager. Liaises with Public Information Manager (PIM) and provides key messages and public information to welfare centres. Undertakes impact/needs assessments of affected communities. Maintains an overview of welfare-related expenditure. Responsibility s The Local Welfare Manager coordinates participating welfare organisations for the delivery of local welfare recovery services. The Local Welfare Manager: Liaises with, and provides advice and support to, the Local Recovery Manager. Coordinates the management of welfare centres and recovery centres. Reports to the Local Recovery Manager as appropriate. Delivers services as outlined in Recovery Action Plan. Maintains an overview of welfare-related expenditure. Additional comments A Local Welfare Manager activity checklist can be found in Section 7 of this guideline. 20 Welfare in an Emergency [DGL 11/10]

23 Local Welfare Committee Description A LWC is a local level committee consisting of a Local Welfare Manager and local welfare agency representatives with roles and responsibilities outlined within the CDEM framework that are essential to the delivery of welfare services in communities. The LWC plans and supports the delivery of community welfare services during reduction, readiness, response and recovery. The Local Welfare Manager usually chairs the LWC. Members Refer to the Welfare agencies table in Section 1 of this guideline for a list of the agencies represented on the LWC. The roles and responsibilities of represented agencies are detailed in s 12 of the Guide to the National CDEM Plan. Establishment The LWC is established and coordinated by the Local Welfare Manager. Establishing a LWC requires: calling the relevant member agencies together for regular meetings developing clear objectives and agendas determining the best method of communication with LWC members, and developing and agreeing SOPs for activation of the LWC in an emergency. If local representation on the LWC is difficult to achieve, facilitation by the CDEM Group EMO, WAG Chair or MCDEM may be required. In some rural areas welfare agencies may form part of an emergency services committee. In these cases a separate LWC is not necessary. Smaller territorial authorities may consider forming a cluster with other territorial authorities in the CDEM Group area when creating a LWC. Activation The decision to activate local welfare arrangements, made by the Local Controller or a delegated authority (in liaison with the Local Welfare Manager) will depend on the scope and scale of the emergency or upon request or advice from responding welfare agencies. Activation will be by the most appropriate means available or by agreed procedures (e.g. phone call, Short Message Service (SMS) text message etc.) to the representatives on the LWC by the Local Welfare Manager or a designated support staff member. During recovery Throughout response and recovery, the Local Welfare Manager will continue to chair the LWC. For more information refer to Recovery Management [DGL 4/05] and s12 and s25 of the Guide to the National CDEM Plan. Welfare in an Emergency [DGL 11/10] 21

24 Recovery centres Introduction Following an emergency it may be necessary to establish a recovery centre. This is frequently the case where the emergency is large in scale, occurs in an isolated area, or has consequences that will impact the affected community for an extended period of time. Description A recovery centre supplies a comprehensive range of recovery services that may be provided by central government departments, local government, NGOs and other agencies. A recovery centre provides many benefits including: minimising travel and inconvenience for affected people maximising coordination and liaison between recovery services, and providing a point of focus for people, especially if they are dislocated from their community environment. Establishment A recovery centre is established by the Local Welfare Manager and the LWC in conjunction with the Recovery Manager. The CDEM Group supports these activities through the Group Welfare Manager and the WAG. Local knowledge and existing links into the community are necessary to effectively coordinate the services required for recovery. Reference Refer to part 4 and Annex C in Recovery Management, Director s Guidelines for CDEM Groups [DGL 4/05] for detailed information and instructions on planning for, establishing and maintaining Recovery Centres. 22 Welfare in an Emergency [DGL 11/10]

25 Section 3: CDEM Group level welfare Overview of CDEM Group level welfare Introduction The Group Welfare Manager liaises with the Local Welfare Manager to support local welfare delivery during large scale events. Together they determine any gaps in the delivery of welfare services, and the Group Welfare Manager works with the WAG to support the Local Welfare Manager. In a CDEM Group level activation, regional representatives of government agencies and NGOs with welfare responsibilities within the CDEM framework, activate and coordinate their activities through the WAG. With advice from the WAG, the Group Welfare Manager ensures that plans are in place for the CDEM Group to support the effective local delivery of welfare services to individuals and communities affected by an emergency. The Group Welfare Manager also oversees the coordination of welfare services at the CDEM Group level. Welfare arrangements need to be specified in CDEM Group Plans. Reduction The CDEM Group is responsible for identifying risks and community vulnerability to those risks as part of CDEM planning for the region. Effective planning to reduce risks, thereby building community resilience, requires a coordinated approach and collaboration between regional (WAG) and local (LWC) welfare. Each LWC should be represented on the WAG, most effectively by the Local Welfare Manager, or by a representative of several LWCs. The WAG provides an opportunity for members to identify and coordinate the contributions that they make to activities and programmes that reduce risk and address community vulnerabilities. The WAG must consider different opportunities to build social resilience in the region and include these in their planning. Readiness Readiness is crucial to the success of a welfare response. Potential community welfare needs should be identified pre-emergency to ensure that response requirements can be supported. Coordination between the agencies is necessary for planning the joint response and each participating agency must have a robust business continuity plan in place to ensure they are able to deliver planned services. The CDEM Group Emergency Management Office will assist in ensuring that information is available to carry out readiness planning. Training and exercises should be undertaken by volunteers, welfare managers, agency staff and others involved in the coordination of welfare service delivery at the CDEM Group level. Building strong relationships and sharing information and lessons learned with other CDEM Groups are strongly encouraged. Ensuring good links with the National Exercise Programme (NEP) is also recommended (refer to the MCDEM website: For the CDEM Sector > CDEM Exercises > National Exercise Programme). The WAG Chair convenes the WAG to support these activities. Response Welfare activities in response are specified in CDEM Group plans and welfare plans. During a response requiring significant regional support and coordination, the Group Welfare Manager, supported by the WAG, provides a pivotal role in ensuring that continued on next page Welfare in an Emergency [DGL 11/10] 23

26 Overview of CDEM Group level welfare welfare response planning, decision making and activities are coordinated and aligned between local and regional levels. Multi-agency response The WAG, through the Group Welfare Manager, provides the basis for multi-agency support and coordination of welfare activities during a response within that CDEM Group s region. Not all agencies represented on the WAG may be involved in any one emergency it depends on the scale of the emergency, welfare needs and local circumstances. Action planning Welfare-focused action planning should occur for each operational period during a response. The CDEM Group Welfare Action Plan will cover the specific actions the CDEM Group needs to undertake to ensure effective support to and coordination of local welfare service delivery. Welfare action plans will be informed by activity undertaken at all levels. Communication Processes to enable efficient communication between all responding agencies need to be in place. This communication needs to follow and be consistent with prescribed CDEM information sharing protocols. The Group Welfare Manager is responsible for keeping the CDEM Group Controller informed, particularly where a CDEM Group welfare response may be seen to be required. Monitoring There is an expectation that regular monitoring of information on welfare activities in response and the supporting needs of welfare agencies delivering welfare services (at all levels) occurs. This will ensure that agencies at the regional level have a shared awareness of the current situation and availability of resources allowing those agencies to respond in a coordinated way. Recovery Refer to: s25 Recovery and s Function: Needs assessment of the Guide to the National CDEM Plan; as well as Part 3: Transition Plan Response to Recovery; and Annex D: Recovery Needs Assessment and Support Survey; and Part 9: Exit Strategy; of Recovery Management [DGL 4/05]. Welfare activities in recovery are specified in CDEM Group plans. Transition from response to recovery The WAG may continue to meet as a sub-task group of the Social Environment Group. In the transition from response to recovery the WAG may be required to identify the nature, capability and location of welfare resources. Welfare agencies may need to evaluate and prioritise the needs of those affected by the event. Accurate and appropriate data collection will enable effective linking of affected persons with community and support agencies. The Group Welfare Manager supports the Group Recovery Manager by compiling needs assessment information from territorial authorities to identify immediate welfare needs, including, but not limited to, financial, housing and psychosocial support. Agencies working in these areas at a regional level will be made aware that their assistance could be required during the early stages of recovery - if they are not already active during response. 24 Welfare in an Emergency [DGL 11/10]

27 Overview of CDEM Group level welfare Exit strategy The formal recovery phase ends with the implementation of the exit strategy. Withdrawal of formal recovery assistance requires the official handover of activities to agencies who normally have the lead responsibility so they can undertake the required services as part of their business as usual functions. The WAG may continue to meet as a sub-task group of the Social Environment Group to monitor the recovery process. Welfare in an Emergency [DGL 11/10] 25

28 Group Welfare Manager Introduction The Group Welfare Manager is the person responsible for CDEM Group- level coordination of the delivery of welfare services by territorial authorities during an emergency. The Group Welfare Manager supports Local Welfare Managers in the delivery of welfare. The Group Welfare Manager is the principal adviser to the CDEM Group Controller and the ECC on the strategic provision and coordination of welfare services during an emergency. Reporting The Group Welfare Manager reports directly to the CDEM Group Controller and liaises with the Group Recovery Manager. The Group Welfare Manager works closely with the CDEM Group Emergency Management Office. Responsibilities and tasks The following outlines the recommended responsibilities and tasks carried out by the Group Welfare Manager pre- and post-emergency. Each emergency is different and the delivery of welfare services may vary as a result. The tasks listed below are generic and may need to be revised for the particular circumstances of each emergency. Responsibility s Pre-emergency The Group Welfare Manager is responsible for the provision of input on welfare-related reduction measures and coordination of the CDEM Group s welfare readiness. The Group Welfare Manager: Builds and maintains appropriate relationships with WAG members. Ensures appropriate membership on the WAG is maintained. Facilitates training on roles and functions for members to ensure an effective state of readiness. Ensures regular liaison with the Chair of the WAG. Attends LWC meetings as appropriate. Facilitates the development and regular revision of the regional CDEM Group Welfare Plan as part of the CDEM Group planning processes. Evaluates local welfare plans in terms of the CDEM Group s role and responsibilities. Ensures that all contact lists are kept up-to-date and easily accessible to those who need them. Responsibility s Emergency and Post-emergency The Group Welfare Manager is responsible for the provision of strategic management and support of welfare response within the CDEM Group s area. The Group Welfare Manager: Advises the CDEM Group Controller on welfare matters, particularly where a CDEM Group welfare response may be seen to be required. Develops/reviews CDEM Group Welfare Action Plan. Liaises with Local Welfare Managers on the provision of welfare services within their territorial authority and supports where necessary. Activates the WAG in consultation with the WAG Chair and the CDEM Group Controller. 26 Welfare in an Emergency [DGL 11/10]