Strategic Policy Framework - PreventionWeb
Disaster ManagementStrategic Policy Framework
ACKNOWLEDGEMENTSThe Department of Emergency Services would like to acknowledge and thank all agencies,organisations and individuals involved in the development of the Disaster ManagementStrategic Policy Framework. Your involvement has flagged key strategic disaster managementissues that have helped shape and inform the Framework.The Council of Australian Governments’ report Natural Disasters in Australia: Reformingmitigation, relief and recovery arrangements (2002) identifies the need for a comprehensive, allhazards, all agencies approach to disaster management, especially with the emergence of newthreats such as terrorism. This approach, including the disaster management elements anddefinitions used in the report, has been adopted in the development of this Framework.Published (October 2005) The State of Queensland (Department of Emergency Services) 2005Copyright: Department of Emergency Services (DES) materials are protected by copyright law.Copyright of DES materials resides with the State of Queensland. Apart from any fair dealing forthe purpose of private study, research, criticism or review, as permitted under copyright legislation,no party may be reproduced or re-used for any commercial purposes whatsoever without writtenpermission of the DES Copyright Administrator, Director, Information Services, Department ofEmergency Services.If you would like to request permission to reproduce or re-use DES materials please emailwebmaster@emergency.qld.gov.au.Disclaimer: These materials have been prepared as a guide only and should not be taken asdefinitive advice on the subject. The Department of Emergency Services accepts no responsibilityfor the completeness or accuracy of this information.2
MESSAGE FROM THE PREMIERQueensland’s Disaster Management Strategic Policy Framework (the Framework) is the State’skey strategic tool for disaster management. The Framework establishes the vision for disastermanagement, aligns with Queensland Government priorities, and sets the direction for deliveryof enhanced community safety and sustainability outcomes.Queensland has long been vulnerable to impacts from a range of natural disasters, includingcyclones, floods, storms and tsunamis. In recent years, new threats have emerged from greaterreliance on technology, storage and transport of hazardous materials, the spread of exoticinfectious diseases, and terrorism. The Framework is designed to guide development ofinitiatives to address disasters.The Framework: Recognises the roles of stakeholders including all levels of government in the coordinateddelivery of disaster mitigation, preparation, response, relief and recovery.Meets key responsibilities as required by s18(a) of the Disaster Management Act 2003.Enhances partnerships by encouraging participation of a broad range of stakeholders ininitiatives to promote community safety.Strengthens transparency and accountability of government by establishing strategicpriorities to guide the application of resources and reporting on achievement of outcomes.Aligns with strategic initiatives for disaster risk reduction internationally and across Australia.Acknowledges the relationship between Queensland and other states, territories andcountries in major disaster events.Represents a key step in delivering Queensland’s commitment to the Council of AustralianGovernments’ reforms for natural disaster relief and mitigation arrangements.The Framework will strengthen Queensland’s disaster preparedness and capacity to implementeffective coordinated initiatives to reduce the impact of disasters on our State and ourcommunities.I commend the Disaster Management Strategic Policy Framework to you.The Hon Peter Beattie MPPremier for Queensland and Treasurer3
INTRODUCTIONThe Queensland Disaster Management Act 2003 (the Act) forms the legislative basis fordisaster management activities within all levels of Government and the Queensland DisasterManagement System. One of the key responsibilities outlined in the Act is for the establishmentof a State Disaster Management Group. A key function of this Group is to develop a strategicpolicy framework for disaster management for the State.The underlying basis for development of the Disaster Management Strategic Policy Frameworkis the need for effective tools to enhance governance and accountability, and to promoteintegrated whole-of-government solutions to complex issues. A further influence has been theshift in national and international disaster management thinking from focusing on reactiontowards pro-active mitigation, systematic risk analysis and risk reduction, and preparation.The lessons from recent world disaster and emergency events are clear – a comprehensive allhazards, all agencies approach is the foundation of effective and efficient disaster management.This approach is captured within the principles of the Framework.The Framework identifies principles that guide the development and implementation of policyand initiatives to achieve the State government’s priorities, in particular the achievement of saferand more sustainable communities. It is a tool for the effective integration of disastermanagement planning and programming across agencies and sectors. It also provides astrategic benchmark against which reporting and evaluation of outcomes can be undertaken.AIM OF THE FRAMEWORKThe aim of the Framework is to:yyyyyyArticulate the vision and goals fordisaster management for the State inline with the objectives of the DisasterManagement Act 2003.Outline the strategic direction to guidethe development of disastermanagement policies and programs forQueensland.Focus on “a comprehensive, allHazards, all Agencies” approach todisaster management.Align the strategic direction for disasterrisk reduction with international andnational reforms.Mainstream disaster mitigation into relevant areas of activity of government, nongovernment, small business and corporations.Outline the governance and accountability arrangements in place that support achievementsof disaster management priorities.4
VISIONA safer community and a better quality of life in Queensland through world-class emergencyand disaster services.VALUESyyyyyProtecting health, safety, quality of life and economic vitality.Building and maintaining partnerships and collaboration across all levels of government,community and industry, in all aspects of disaster management.Protecting our natural and built environment.Respecting the diversity of Queensland communities.Ensuring accountability and transparency of the Queensland disaster managementarrangements.GENERAL PRINCIPLES FOR DISASTER MANAGEMENTThe Framework is underpinned by the following general principles: A comprehensive, all hazards, all agencies approach by achieving the right balance ofprevention, preparedness, response and recovery, regardless of the nature of the hazardthrough established partnerships. Prepared communities ensuring they understand their role in disaster managementarrangements. Consultative decision-making. A transparent, systematic and consistent approach to disaster risk assessment andmanagement is promoted based on the Australian Risk Management Standard AUS:NZ4360:2000. All levels of government apply effective corporate governance and are committed tocontinuous improvement of policy, programs, practices and service delivery to improvecommunity safety.ELEMENTS OF THE DISASTER MANAGEMENT STRATEGIC POLICYFRAMEWORKThe Framework’s elements outline how a comprehensive, all hazards, all agencies approachincluding better prepared communities, will be applied in Queensland. The elements representbest practice disaster management as identified and defined in the COAG Report Review ofNatural Disaster Relief and Mitigation Arrangements.A continuous improvement approach will be applied to the Framework through the applicationand practise of the elements. This will enable regular enhancement of the Queensland DisasterManagement System.The definition of disaster and serious disruption from the Disaster Management Act 2003 isused in this Framework.A disaster a serious disruption in a community, caused by the impact of an event, thatrequires a significant coordinated response by the State and other entities to help thecommunity recover from the disruption.A serious disruption is the loss of human life, or illness or injury to humans; and/orwidespread or severe property loss or damage; and/or widespread or severe damage tothe environment.5
Disaster ResearchDisaster research may be broadly understoodas a systematic inquiry, before and after adisaster, into a relevant disaster managementproblem.Greater investment in research hassignificant potential for high ratios of benefitto cost. Disaster research allows forcontinuous improvement through testing andanalysis. Lessons learnt from post-disasterassessment and disaster managementexercises can also contribute to theidentification of best practice disastermanagement practices.ObjectiveUse collaborative and best practice researchto inform disaster management and improvethe effectiveness of disaster managementprinciples, policy development and practices.StrategiesIdentify, support and resource researchpriorities. Capture lessons learnt to develop policy,manage research allocation, planningand resources. Establish a knowledge managementframework. Translate knowledge into practicethrough review of plans and proceduralsystems and processes. Centralise research and access toresults. Establish formal relationships withresearchers to incorporate disastermanagement knowledge into effectivepolicy and practice. Recognise and incorporate the principlesof intellectual property in all researchactivities. Key Performance Indicators Formal partnerships established withresearchers. Research outcomes inform disastermanagement policy development andpractice.6
Policy & GovernancePolicy and governance elements ensure cleardirection of disaster management priorities,resource allocation and accountabilitythrough sound performance managementand risk management for the whole disastermanagement system.ObjectiveDisaster management outcomes areachieved through the development andimplementation of sound policy and effectivecorporate governance.Strategies Ensure clear and transparent decisionmaking through collaboration,cooperation and communication. Implement effective governance throughsound performance management andcontinuous improvement frameworks. Ensure consistent application oflegislation, regulations and supportingpolicies. Review the disaster management systemto:o streamline arrangements;o develop clear accountability,including defined roles andresponsibilities at all levels ofthe disaster managementsystem;o improve the communicationflow process; ando develop whole-of-governmentmedia arrangements.Integrateeffectivedisaster risk reduction initiatives into strategic and corporateplans at all levels of government, industryand commerce.Key Performance Indicators Clearly defined roles and responsibilitiesof agencies involved in the disastermanagement system. Legislative requirements are supported bydisaster management policies.7
Disaster Risk AssessmentDisaster risk assessment is the process usedto determine risk management priorities byevaluating and comparing the level of riskagainst predetermined standards or othercriteria.Disaster risk assessments determinecommunity vulnerability through theidentification of risks, likelihood andconsequence of a disaster occurring. Theseassessments allow for an increased focus onanticipation, mitigation, and recovery andresilience to achieve safer and moresustainable communities.ObjectiveDisaster risk assessments are used to protectlife and property and contribute to sustainabledevelopment.Strategiesy Ensure the integrity of risk assessmentsthrough alignment to the Australian RiskManagement Standard, the provision ofbest practice models and rigorousevaluation.y Ensure outcomes of disaster riskassessments are clearly articulated andtransparent.y Improve the understanding, coordinationand resource allocation of disaster riskmanagement at all levels throughinformed research.y Assist all communities includingIndigenous communities to implementdisaster risk management processes.y Develop risk registers at all levels of thedisaster management system that clearlyidentify community vulnerability and thebroader social and economic risksassociated with disasters.Key Performance Indicatorsy Comprehensive disaster riskassessments are complete, relevant andupdated regularly.8
Disaster MitigationDisaster mitigation is the means taken inadvance of, or after, a disaster aimed atdecreasing or eliminating its impact onsociety and the environment.The implementation of mitigation initiativescan offer sustainable cost savings tocommunities and government in the event ofa disaster. They should be subject torational, cost/benefit and social investmentdecisions, with special provision for remote,Indigenous and other communities.ObjectiveReduced risk and enhanced communityresilience.Strategiesy Mainstream mitigation into disastermanagement practice.y Strengthen regionally coordinatedmitigation initiatives through whole-ofgovernment leadership.y Improve land use managementthrough the integration of disaster riskreduction into building regulation codesand standards, and educationalcurricula.y Share knowledge and innovativesolutions to build community resilienceand self-reliance.Key Performance Indicatorsy Mitigation priorities are determined byevidence of disaster risk assessments.9
Disaster PreparednessDisaster preparedness includesarrangements that ensure that, should anemergency occur, all those resources andservices which are needed to cope with theeffects can be efficiently mobilised anddeployed.Community, volunteer and agencypreparedness is critical to assist in minimisingthe impact of an event on the community andto ensure effective and timely operationalresponse in the event of a disaster. Allobstacles to volunteer involvement should beremoved given their importance in naturaldisaster management arrangements.ObjectiveCreate aware and prepared communities.Strategiesy Ensure alignment of state, district, local,and specific disaster management plans.y Enhance the understanding of andplanning for catastrophic events.y Drive behavioural change throughtargeted community disastermanagement education and awarenessinitiatives.y Appropriately resource communitiesagainst the level of disaster risk, throughcontinual review and improvement.y Utilise community networks to enhancedisaster management resilience andsustainability.y Exercise to test disaster managementplans and procedures.Key Performance Indicatorsy Increased level of community disasterawareness.y Increased level of community disasterpreparedness.y Disaster management plans are in placeat all levels of the disaster managementsystem.10
Disaster ResponseDisaster response includes the actions takenin anticipation of, during, and immediatelyafter an emergency to ensure that its effectsare minimised.The importance of a timely, coordinatedapproach to disaster response is essentialwith greater demands being placed uponresources due to the increase in urbanisation,proximity of industry to high-density areas,and urban congestion. This timely,coordinated approach requires the cleardefinition of roles and responsibilities of thoseinvolved in response activities.ObjectiveThe impacts of a disaster are minimised byeffective and efficient disaster response.Strategiesy Ensure effective operationalcapabilities exist within the disastermanagement system.y Ensure a coordinated approach existsacross all levels of the disastermanagement system through the cleardefinition of roles and responsibilities.y Develop and implement an effectivecommunication strategy that enhancespublic warning and information.y Enhance community volunteercapability.y Ensure consistent application ofstandard operating procedures andother response planning tools.y Consider predeployment of personneland assets in anticipation of anemergency or disaster.y Ensure planning incorporates animmediate assessment of the scaleand scope of damage and priorityneeds.y Utilise technology to supportoperational efficiency andeffectiveness.Key Performance Indicatory All disasters are responded to in a timelyand appropriate manner.11
Disaster Relief and RecoveryDisaster relief is the provision of immediateshelter, life support and human needs topersons affected by, or responding to anemergency.Disaster recovery is the coordinated processof supporting affected communities in thereconstruction of the physical infrastructureand restoration of emotional, social,economic, physical wellbeing.Timely coordinated deployment of disasterrelief and recovery is equally important aseffective disaster response in minimising theimpact on the communities affected by adisaster. The application of a holisticapproach to relief and recovery requires theclear identification of the roles andresponsibilities all stakeholders involved inthe process.ObjectiveImproved functions of communities followinga disaster.Strategiesy Ensure a holistic approach to communityrelief and recovery (immediate short andlong-term) inclusive of social (especiallyimmediate welfare support, health andpsychosocial), economic, infrastructure(including power, water and sewerage)and environmental considerations.y Ensure the preparation of acomprehensive plan addressingimmediate short and long term recoveryneeds of the community (including acheck list).y Consider the appointment of acoordinating taskforce to assist the LocalDisaster Management Group.y Ensure a proactive communicationstrategy to keep the community fullyaware of actions being taken.y Enhance disaster relief arrangements.y Ensure recovery arrangements remainflexible and adaptable for all communitiesincluding Indigenous communities.y Encourage stakeholders to embed soundbusiness continuity practices that addressall elements of disaster managementincluding relief and recovery.12
Key Performance Indicatory Relief and recovery agencies are properlyintegrated into disaster managementarrangements.Post-Disaster AssessmentPost-disaster assessment evaluates risksrevealed by an emergency or disaster eventin order to improve future development ofmitigation measures. Post-disasterassessment forms part of continuousimprovement of whole system.Analysis of Post-disaster assessment canlead to confirmation of good practice oridentification of areas of process, policy ortraining relating to response, relief andrecovery that need to be addressed for futuredisaster events. These assessments canalso provide particular lessons relating tomitigation to improve community safety forthe future.ObjectivePost-disaster assessment strengthensQueensland’s disaster managementcapability.13
Strategiesy Improve Post-disaster assessmentsthrough the application of AustralianRisk Management Standard.y Undertake Post-disaster assessmentto review the effectiveness of disastermanagement including thedetermination of the social andeconomic costs of disasters (tangibleand intangible).y Implement a knowledge managementFramework to capture and implementlessons learnt.y Maintain a log of strategies that workwell and opportunities for improvementbefore, during and after a disasterevent.Key Performance Indicatory Lessons learnt from disaster events anddisaster management exercises areembedded into disaster managementplanning.14
APPLICATIONUnder the Act, the State Disaster Management Group is responsible for ensuring that disastermanagement and disaster operations in Queensland are consistent with this Framework. However,the application of the Framework is a whole-of-government responsibility with the Groupoverseeing the implementation of the Framework on behalf of the State.The committees established by the State Disaster
Queensland’s Disaster Management Strategic Policy Framework (the Framework) is the State’s key strategic tool for disaster management. The Framework establishes the vision for disaster management, aligns with Queensland Government priorities, and sets the direction for delivery of enhanced community safety and sustainability outcomes.
AND FRAMEWORK Version Control Version Number Description Date Version 0.1 Risk Appetite And Tolerance Policy And Framework 16 -10 2018 Version 0.2 Risk Appetite And Tolerance Policy And Framework 27-01-2020 Version 0.3 Risk Appetite And Tolerance Policy And Framework 29-01-2021 Version 0.4 Risk Appetite And Tolerance Policy And Framework
The Strategic Management Process 15 Developing a Strategic Vision: Stage 1 of the Strategic Management Process: 17 How a Strategic Vision Differs from a Mission Statement 19 The Importance of Communicating the Strategic Vision 22 The Benefits of an Effective Strategic Vision 22 Setting Objectives: Stage 2 of the Strategic Management Process 22 xxiv
PART ONE Introduction to Strategic Management and Business Policy 1 CHAPTER1 Basic Concepts of Strategic Management 2 1.1 The Study of Strategic Management 5 Phases of Strategic Management 5 Benefits of Strategic Management 6 1.2 Globalization and Environmental Sustainability: Challenges to Strategic Management 7 Impact of Globalization 8
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