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Brisbane City Council

Local Disaster Management Plan

Chapter 9:

Moreton Island Sub-plan

2015

Brisbane City Council Local Disaster Management Plan Chapter 9 – Moreton Island Sub-plan 2015

The Brisbane City Council Moreton Island Sub-plan is an operational level sub-plan that sits within Brisbane City Council’s Local Disaster Management Plan, prepared under the terms of the Disaster Management Act 2003 (Queensland). It is supported by standard operating procedures (SOPs) that outline the procedures to be followed when the Moreton Island Sub-plan is activated. These SOPs are internal documents and are available on Council’s Disaster Management intranet or through the Disaster Management Office.

ReferencesTable 1 summarises a comprehensive, but not exhaustive, list of the many interrelated documents that provide authority for this Plan.

Table 1: Moreton Island Plan reference list

References

A. The Queensland Disaster Management Act 2003, current approved edition

B. Queensland Disaster Management Planning Guidelines

C. Australian Emergency Management Handbook Series – Handbook 4 – Evacuation Planning

D. Emergency Management Queensland, Queensland Evacuation Guidelines for Disaster Management Groups

E. Public Safety Preservation Act 1986

F. Brisbane City Council Evacuation Plan 2013

G. Brisbane City Council Evacuation Standard Operating Procedure

H. Emergency Response Procedure, Action Plan for Emergencies – Queensland Parks and Wildlife Service 2011

I. Wildfire Response Plan – Queensland Parks and Wildlife Service 2011

J. Department National Parks, Recreation, Sport and Racing website: http://www.nprsr.qld.gov.au/parks/moreton-island/index.html

K 2013-2014 Queensland State Disaster Management Plan

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http://www.nprsr.qld.gov.au/parks/moreton-island/index.html


Table of ContentsReferences....................................................................................................................i1.0 Introduction......................................................................................................1

1.1 Audience........................................................................................................11.2 Approval.........................................................................................................11.3 Custodian.......................................................................................................11.4 Purpose..........................................................................................................11.5 Authority.........................................................................................................11.6 Activation........................................................................................................11.7 Moreton Island stakeholders..........................................................................1

2.0 Scope................................................................................................................32.1 Assumptions...................................................................................................32.2 Definitions......................................................................................................3

3.0 Moreton Island Quick Facts............................................................................43.1 Brisbane City SES Unit, Moreton Island Group.............................................43.2 Cruise ships...................................................................................................4

4.0 How To Use This Sub-Plan During Operations............................................55.0 Risk Management............................................................................................7

5.1 Tangalooma Resort specific plans.................................................................76.0 Evacuation Process.........................................................................................8

6.1 Chain of Command / Control of agencies on Moreton Island........................97.0 Warning..........................................................................................................11

7.1 Set up & Pre-position...................................................................................118.0 Withdrawal......................................................................................................139.0 Extraction.......................................................................................................1410.0 Reception & Relocation................................................................................1511.0 Return.............................................................................................................16

APPENDIX 1 – ACRONYMS AND ABBREVIATIONS........................................17

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1.0 IntroductionThis Moreton Island Sub-plan is designed to be a guide for the evacuation, shelter and support services for people affected by an emergency or disaster event on Moreton Island.

1.1 AudienceThis sub-plan has been prepared for Council, the Lord Mayor, Brisbane LDMG, Council Business Units, and key external stakeholders.

1.2 ApprovalThis Moreton Island Sub-plan is approved by the Brisbane LDMG under the terms and provisions of the Act.

1.3 CustodianThe MDMO, on behalf of Council, is the custodian of this plan. The custodian has the responsibility for implementing, evaluating, testing, reviewing and updating this plan. The custodian is also to ensure proper quality, security, integrity, consistency, privacy, confidentiality and accessibility of the plan.

The Custodian’s contact details are:

Title: Manager, Disaster Management Office Contact:(07) 3403 8888 GPO Box 1434 Brisbane Qld, 4001

1.4 PurposeThe purpose of evacuation is to ensure people at risk during a disaster event can be moved to a location of relative safety and provided with emergency human services, including short-term accommodation if necessary.

1.5 AuthorityThis plan forms a sub-plan of the Brisbane City Council Local Disaster Management Plan, and is developed under the authority of the Act.

The Brisbane Local Disaster Coordinator (LDC), the CEO Brisbane City Council, is the Authority for this plan. The Brisbane LDC may also elect to activate this plan in consultation with, or under direction from, the State or Brisbane District Disaster Coordinators.

1.6 ActivationThe Moreton Island Sub-plan will be considered for activation by the LDC, in consultation with, or under direction from, the State or Brisbane District Disaster Coordinators, where the nature of risk to the community will require the movement of at risk persons to a safer location.

1.7 Moreton Island stakeholdersThe Moreton Island stakeholders include but are not limited to the following agencies:

Brisbane City Council – Disaster Management Office (DMO) Brisbane City Council –Compliance and Regulatory Services (CARS) Brisbane City Council – Corporate Communications (Crisis Communications) Brisbane City Council – Brisbane Lifestyle (BL) Brisbane City Council – Brisbane Transport (BT)

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Brisbane City Council – Field Services Group (FSG) Queensland Police Service – Redcliffe District Disaster Management Group

(Redcliffe DDMG) Queensland Police Service (QPS) Department of Communities, Child Safety and Disability Services (DCCSDS) Department of National Parks, Recreation, Sport & Racing (DNPRSR)

(Queensland Parks & Wildlife Service – QPWS) Red Cross State Emergency Service (SES) Queensland Fire and Emergency Service (QFES) Queensland Ambulance Service (QAS) Tangalooma Island Resort Brisbane City Council – Office of the Lord Mayor and CEO

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2.0 ScopeThis plan provides a strategic overview of the process of coordinating and tasking agencies to facilitate the evacuation of persons at risk on Moreton Island and its shoreline waters to the mainland or other safe havens within the island communities of Moreton Bay.

This plan will focus on five phases of coordination and tasking which are:

1. Preliminary

2. Withdrawal

3. Extraction

4. Reception and relocation

5. Return

Moreton Island is susceptible to various risks. For this reason an all-hazards approach will be used.

This plan will not cover evacuation centre management. See Evacuation Plan and SOP for further details.

This plan does not cover recovery planning.

2.1 Assumptions Brisbane City Council is the lead agency for this plan with support from the

Redcliffe DDMG, Queensland Police Service, Queensland Parks and Wildlife Service and other agencies as required.

Relocation is defined as the relocation of evacuees to designated areas within the geographical boundaries of Moreton Island and its shoreline waters due to a disaster event or predicted disaster event.

Extraction is defined as the extraction of evacuees from Moreton Island and its shoreline waters to the mainland or other island communities within Moreton Bay.

A disaster event will be as defined in the Queensland Disaster Management Act 2003.

Evacuation may be required without a declaration of a Disaster Situation.

Evacuees may include local residents, campers, day tourists and resort staff and patrons found within the geographical boundaries of Moreton Islands and its shoreline waters.

The magnitude of, and methodology for, evacuation will be determined by the impact (or potential impact) of the event.

Queensland Police Service, supported by QPWS and SES staff, will provide the resources necessary to ensure the safe passage of evacuees from their location on the Island to the muster point for extraction.

2.2 DefinitionsSee evacuation plan for definitions relevant to evacuation.

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3.0 Moreton Island Quick FactsMoreton Island is located in Moreton Bay approximately 40km from Brisbane. Moreton Island is 37km long and 10km wide at its widest and is a wedge shaped island covering over 185 square kilometres.

It is the third largest sand island in the world and has no town services, sealed roads, electricity, town water or sewerage. Phone coverage is incomplete.

Over 98% of Moreton Island is designated National Park with a unique combination of flora and fauna. (See Moreton Island Map figure 1, p 6.)

There are 4 townships at Bulwer, Cowan Cowan, Tangalooma and Kooringal with the majority of people on the island living or staying at the Tangalooma Island Resort.

There is a permanent population of approximately 380 people. There are also approximately 8 rangers at any one time stationed at the National Parks and Wildlife base at Ben-Ewa, and one permanent QAS member currently stationed at Tangalooma Resort.

Township numbers do increase during holiday and weekend periods by approximately 100 to 250.

There is no service station, doctor, dentist or school on the island.

There are a number of persons at risk during events, including:

visitors camping on the island with vehicles visitors camping on the island without vehicles residents of Moreton Island staff and patrons of Tangalooma Resort complex QPWS staff.

3.1 Brisbane City SES Unit, Moreton Island GroupBrisbane City Council has an SES Unit located on the Island, the Moreton Island Group. This group is located on Tangalooma Island Resort land. The majority of this group consist of volunteers that are also staff members at Tangalooma Island Resort. As there are limited resources on this island, the Moreton Island Group is trained in road crash rescue.

3.2 Cruise shipsP&O Cruises has a partnership with Tangalooma Island Resort. Approximately 18 ships would have visit Tangalooma Island Resort in 2015. At least 36 ships are scheduled to visit Tangalooma Island Resort in 2016. This number is likely to increase.

Each cruise ship has approximately 1968 passengers and 700 crew members on board. Passenger demographics vary depending on the date and time of year. Generally, mid-week cruises have an older demographic and weekend cruises have a younger demographic.

Cruises arrive at 5.30am in the morning and passengers disembark from 7.30am onwards.

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4.0 How to Use this Sub-plan During OperationsThis sub-plan should be used to guide the conduct of the evacuation and should be used in conjunction with the Evacuation Sub-plan and SOP. This plan has been developed as an operational guide with pre-determined strategies able to be adapted to the specific circumstances of the event.

This plan is broken into 5 phases as indicated in the diagram below. These 5 phases will determine the planning considerations when evacuation is deemed necessary.

Figure 1: Stages of Evacuation

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Figure 2: Moreton IslandSource: Department of National Parks, Recreation, Sport and Racing website

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5.0 Risk Management

Risks for Moreton Island include: Bushfire Tsunami Storm surge Oil spill Severe storm East Coast low Isolation Heat wave Economic loss/loss of tourism Events during high season for tourism Communications – lack of phone reception, language barrier for tourists Risk to other islands e.g. support and resources stretched Maritime accidents – cruise ship, ferry or barge accidents/incidents

5.1 Tangalooma Resort specific plansTangalooma Resort has a suite of plans for the resort (not for the whole of Moreton Island). These plans include:

Emergency plans Tsunami plan Asset register Risk management Communications plan Transport plan Business continuity planning

Further information on these plans and the activation of these plans is through the Tangalooma Resort Manager. (See Moreton Island SOP for contact details.)

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6.0 Evacuation ProcessEvacuation may be either immediate or pre-warned.

It may involve internal evacuation on the island or external evacuation from the island.

It may be voluntary or directed in nature.

Voluntary evacuation will normally involve persons self-evacuating, however, some transport assistance may be required for people with disabilities, the homeless, disadvantaged and aged members of the community who do not have access to appropriate transport.

Directed evacuation occurs when a police officer who is authorised by relevant legislation (either the Disaster Management Act 2003 or the Public Safety Preservation Act 1986) makes a decision to execute specific powers under that legislation and orders people to evacuate a designated area.

The decision to evacuate should take into account the following factors:

A vulnerability analysis which considers whether, for the hazard and conditions, sheltering in place may be preferable.

The potential for risk to evacuees during movement from the islands.

Available lead time.

The ability to effectively warn affected people.

The time and resources (transport and people) to carry out the evacuation.

Access and egress to/from the islands.

The availability of assembly areas.

The safety of emergency workers.

The potential numbers of evacuees involved.

The requirement to provide temporary accommodation.

Figure 3: Stages of Evacuation - Preliminary

The preliminary phase outlines the warning, set up and pre-position of response agencies.

Authority The Brisbane Local Disaster Coordinator (LDC – CEO Brisbane City Council) is the Authority for this procedure.

Agencies involved

Internal External

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Local Disaster Management Group (LDMG) - as required

Redcliffe District Disaster Management Group (Redcliffe DDMG)

Disaster Management Office (DMO) / Local Disaster Coordination Centre (LDCC)

Queensland Police Service (QPS)

Brisbane Lifestyle (BL) Department of Community Safety (DCS)Brisbane Transport (BT) Department of Communities, Child

Safety and Disability Services (DCCSDS)Field Services Group (FSG) Department of National Parks,

Recreation, Sport and Racing (DNPRSR) (Queensland Parks & Wildlife Service – QPWS)

Corporate Communications (Crisis Communications)

State Emergency Service (SES)

Compliance and Regulatory Services (CARS)

Australian Red Cross

Queensland Fire and Emergency Services (QFES)Queensland Ambulance Service (QAS)Tangalooma Island Resort

Activation of the planA decision to activate the plan will be in consultation with the LDC, the Manager, Disaster Management Office and relevant stakeholders.

6.1 Chain of Command / Control of agencies on Moreton Island

Command and Control is event specific and the agency that takes the lead in an event will differ depending on the type of event. The Brisbane LDMG and the LDCC will typically play a supporting role in an event on Moreton Island.

The following table from the State Disaster Management Plan (2013-14) outlines the primary agencies responsible for each specific hazard and the respective state and national level plans, where appropriate.

Hazard Primary Agency State and National Plans

Animal and plant disease

Department of Agriculture, Fisheries and Forestry

Australian Veterinary Emergency Plan (AUSVETPLAN)

Australian Aquatic Veterinary Emergency Plan (AQUAVETPLAN)

Australian Emergency Plant Pest Response Plan (PLANTPLAN)

Biosecurity Emergency Operations Manual (BEOM)

Biological (human related)

Queensland Health State of Queensland Multi-agency Response to Chemical, Biological, Radiological Incidents

Bushfire Queensland Fire and Emergency Services

Wildfire Mitigation and Readiness Plans (Regional)

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Chemical Queensland Fire and Emergency Services

State of Queensland Multi-agency Response to Chemical, Biological, Radiological Incidents

Heat Wave Queensland Health Heat Stress Response Plan

Pandemic Queensland Health Queensland Pandemic Influenza Plan

National Action Plan for Human Influenza Pandemic

Ship-Sourced Pollution Transport and Main Roads Queensland Coastal Contingency Action Plan

National Plan for Maritime Environmental Emergencies

Radiological Queensland Health State of Queensland Multi-agency Response to Chemical, Biological, Radiological Incidents

Terrorism Queensland Police Service Queensland Counter-Terrorism Plan

National Counter-Terrorism Plan

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7.0 Warning In the initial warning that an event is likely to occur or has occurred, agencies will be notified by the Disaster Management Office as follows:

Hazard/Event occurs

Disaster Management Office is notified.DMO:

gathers intelligence issues warning order notifies LDC and LDCC/LDMG if activated

LDC decides whether to place staff/agencies on standby and/or activate

DMO notifies internal and external response agencies including:

Brisbane Transport Brisbane Lifestyle CARS FSG Crisis Communication Queensland Police Service Red Cross DNPRSR SES DCCSDS DCS QPWS

7.1 Set up & Pre-position Three primary Council locations will be established for setting up and pre-positioning agencies to support the operation. The following table outlines the lead roles and their locations.

Role LocationLocal Disaster Coordinator (LDC) CEO’s conference room BrisbaneRegional Incident Controller Moreton Island RIMT (RIMT - MI)

Tangalooma Conference Room, Moreton Island or the RIMT forward command container

Incident Controller Brisbane LDCC Level 1, Brisbane SquareQueensland Parks and Wildlife Service Incident Controller

Located at Ben-Ewa QPWS Ranger station but will co-locate at Tangalooma or in the field as required

The Incident Controller for the Moreton Island RIMT will be the Manager, Disaster Management Office or delegate.

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Key tasks for agencies in the warning set up & pre-position phase: Initial planning for the evacuation strategy Warning order promulgated Teams placed on standby or activated and deployed to Moreton Island Marshal points, embarkation and disembarkation points are identified based

upon threat Communications strategies are developed and evacuees are notified Relevant resources are identified and deployed RIMT Moreton Island (RIMT- MI) activated and established Safety marshals identified and embedded

The operations order and administration instructions can all be found in the Moreton Island SOP.

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8.0 WithdrawalFigure 4: Stages of Evacuation – Phase 1: Withdrawal

Phase 1 of the operation is the withdrawal phase. During this phase priority is on the safe relocation of evacuees under the control of Queensland Police Service (QPS) from their location on the island to the mustering points, coordinated by Council.

Following this, evacuees will be moved to the departure area, coordinated by Council, on Moreton Island, with support from QPS for processing by Red Cross, QPS and Tangalooma Management as required.

In the interest of expedience, processing may be conducted in Phase 2 (during transit), Phase 3 (on arrival to safe location) or Phase 4 (upon registration into a Council evacuation centre).

Key tasks for agencies during the withdrawal phase are: Resources are on site and in place Embarkation points are activated and managed Evacuation centres are established Media releases are sent out Registration process begins Evacuees are relocated

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9.0 ExtractionFigure 5: Stages of Evacuation - Phase 2: Extraction

The extraction phase is the transit to a safe location (most likely by sea by commercial provider) which is coordinated by Council with agency support.

Means of transit are to be staffed by Council, QPS and Red Cross/DCCSDS Officers as practical. Processing of evacuees may be undertaken in this phase in the interest of expedience and efficiency.

Key tasks for agencies during the extraction phase are: Transport resources are used to move evacuees Evacuees are transited to disembarkation point(s) and then on to established

evacuation centres Media releases are promulgated Remaining residents are monitored Campers are rotated to alternate campsites if safe to do so

If the most appropriate option is to move residents and tourists/campers to alternate locations on the island, the Manager Disaster Management Office will work in consultation with QPWS and other relevant agencies to make a decision on where evacuees will be relocated.

In bushfire events evacuees may be required to temporarily shelter in place. In a fire event at Moreton island the safest location is the beach until the threat passes.

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10.0Reception & RelocationFigure 6: Stages of Evacuation - Phase 3: Reception & Relocation

The reception and relocation phase is the disembarkation of evacuees at a safe haven and relocation to an evacuation centre. Council’s Emergency Human Services Operational Team (EHSOT) will provide coordination of disembarkation with support from QPS and other agencies as required. Council’s BT is to provide a transportation solution with other agencies as required from the disembarkation point to the evacuation centre/s. Processing of evacuees may occur in this phase in the interest of expedience of evacuation from the threat.

Relocation of evacuees is in accordance with Brisbane City Council’s Local Disaster Management Plan, specifically the Evacuation Sub-plan and standard operating procedure. Council will establish and coordinate a council evacuation centre or centres with support from relevant agencies.

Key tasks for agencies during the reception and relocation phase are: Transport and traffic management strategies are in place Bump in process for evacuation centres is established Evacuees arrive at evacuation centres Evacuation centres are staffed and managed Continued media messaging Continued registration of evacuees Work in consultation with QPWS on the movement of campers to alternate

camp sites (if staying on the island)

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11.0ReturnFigure 7: Stages of Evacuation - Phase 4: Return

The return phase is the end state when all returning evacuees are safely returned to Moreton Island following the disaster event.

Key tasks for agencies during the return phase are: Clean up and safety assessment of the affected area on Moreton Island Intelligence gathering to establish if it is safe to return Notification to evacuees and general public on return status Transportation back to Moreton Island Reconditioning and pack up of evacuation centres (bump out process) Stand down of response agencies Transition to recovery agencies Debrief

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Appendix 1 – Acronyms and AbbreviationsBL Brisbane LifestyleBrisbane LDMG Brisbane Local Disaster Management GroupBT Brisbane TransportCARS Compliance and Regulatory ServicesCEO Chief Executive OfficerDCCSDS Department of Communities, Child Safety and

Disability ServicesDCS Department of Community SafetyDDMG District Disaster Management GroupDMO Disaster Management OfficeDNPRSR Department of National Parks, Recreation, Sport &

RacingEHSOT Emergency Human Services Operational TeamEMT Executive Management TeamFSG Field Services GroupIAT Immediate Action TeamLDC Local Disaster CoordinatorLDCC Local Disaster Coordination CentreLM Lord MayorMDMO Manager, Disaster Management OfficeQAS Queensland Ambulance ServiceQFES Queensland Fire and Emergency ServiceQPS Queensland Police ServiceQPWS Queensland Parks and Wildlife ServiceRIMT Regional Incident Management TeamRMP Risk Management PlanSES State Emergency ServiceSOP Standard Operating Procedure

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