Ceredigion County Council Major Incident Plan September 2018
Cyngor Sir CEREDIGION County Council
Major Incident Plan
Working version
This plan is reviewed by the Emergency & Business Continuity Management Group
Version 7.0
Name of originator/author Civil Contingencies Officer Name of responsible department/individual Community Safety & Civil Contingencies Unit Date issued September 2018 Review date September 2019
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If a Major Incident has been declared
and you are not familiar with this plan
DO NOT READ IT NOW
Find your Action Card
from page 3 onwards and follow instructions
Disclaimer
Ceredigion County Council, whether directly or indirectly, will accept no responsibility for any errors or mistakes in information supplied by external bodies or individuals that are included in this document. In addition, no responsibility will be accepted for any claim made by a non- prescribed recipient, or unauthorised user of this document, on any matter that might be deemed the responsibility of Ceredigion County Council.
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EMERGENCY PLANNING DUTY OFFICER / CIVIL CONTINGENCIES OFFICER
Role: The Emergency Planning Duty Officer (EPDO) is a focal point for emergency calls coming into the Authority out of hours until such time as the Major Incident Plan is activated. The EPDO is responsible for dealing with the initial alert from the Emergency Services.
Responsibilities: To record, and pass on relevant information from the incident to the Civil Contingencies Officer, Community Safety & Civil Contingencies Unit or senior management within Ceredigion County Council Brief the Chief Executive and recommend: o The formation of the Councils Emergency Leadership Group for initial incident briefing / assessment, confirming time and location o The opening of the Councils Emergency Control Centre (ECC) o The need for liaison officers to represent external organisations Initially liaise with other relevant agencies to ensure a multi-agency response Assist the Civil Contingencies Officer and senior officers with management of the incident until the Emergency Control Centre is activated Ensure information is collated and disseminated through regular Situation Reports as required until the ECC takes over Return to normal EPDO duties or ensure continuity of EPDO service
ACTION
1. When alerted, START A LOG, and record information, actions and decisions.
2. On receipt of the message, record as much data as possible such as: The name / Rank / Role / Responding Agency of the caller Telephone contact number of the caller The incident in terms of its general nature The incident location(s) The area(s) affected Casualties Time of occurrence Any immediate requirements for Local Authority assistance Any immediate requirements for attendance of Local Authority personnel at Gold / Silver / Bronze controls detailing time and location of meeting(s) Access Routes and Rendezvous points Location of Multi-Agency command
3. Immediately notify the Civil Contingencies Officer, Ceredigion Community Safety & Civil Contingencies Unit, and take any action as directed, including any further cascade required.
4. Manage calls and regularly liaise with the Civil Contingencies Officer / senior management to pass on further information, and to receive instructions.
5. Liaise with other responding agencies to clarify their response.
6. Initiate the ECC opening procedures if requested.
7. Arrange for staff to be called out as required to attend multi-agency meetings and other support roles. Page 3 of 66 Classification NOT PROTCTIVELY MARKED Ceredigion County Council Major Incident Plan September 2018
CHIEF EXECUTIVE / CORPORATE DIRECTOR/ CORPORATE LEAD OFFICER
Nominated Officer: Chief Executive, Corporate Director, or any Corporate Lead Officer who has responsibility to act in the absence of the Chief Executive.
Role: The Chief Executive has overall responsibility for the Councils response to a Major Incident. Much of the organisation and work of the Council will be co-ordinated by various officers through the Emergency Control Centre (ECC). The Chief Executive has overall authority for activation of the plan.
Responsibilities: On notification, reach an agreement with the Civil Contingencies Officer on the level of response required and whether to activate the Major Incident Plan Establish formation of the Councils Emergency Leadership Group for initial incident briefing / assessment: o Confirming time and location o A venue and time for the Emergency Leadership Group meeting o Any immediate requirements for attendance of Local Authority personnel at Gold / Silver controls Brief the relevant political representatives of the Council Ensure, as far as practicable, that essential Council functions are maintained. Determine what services may be suspended or scaled back if necessary, and in which priority order Maintain communications with internal and external stakeholders as appropriate Attend Gold or nominate a relevant Chief Officer
ACTION
1. Appoint a trained loggist to START A LOG to record actions and decisions.
2. In conjunction with the Emergency Leadership Group decide: The level of alert, notification and deployment across the Authority Activation of the Major Incident Plan The requirement to establish an Emergency Control Centre The appointment of Liaison Officers at Command levels Potential requirements for Mutual Aid from neighbouring Authorities
3. Brief the Leader of the Council and major stakeholders of the incident.
4. If a multi-agency Strategic Co-ordinating Group (Gold) is convened, consider appointing a Deputy to act as a Liaison Officer, along with a support officer.
5. Ensure regular meetings and briefings of the Emergency Leadership Group to ensure all strategic factors are being considered.
6. Determine the impact of the incident on contractual and statutory services and consider steps to minimise any disruption as far as practicable.
7. Ensure that appropriate finance tracking systems are in place and authorise any additional expenditure where necessary or where requested.
8. At an appropriate time issue a Major Incident Stand-Down message, and facilitate the return to normal Authority business.
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TRAINED LOGGIST
Nominated Officer: Only those who have received the appropriate training from Dyfed- Powys Local Resilience Forum.
Role: The loggist will be responsible for ensuring that the master record of events are logged and displayed in the Emergency Control Centre (ECC).
Responsibilities: Maintain a log of ALL messages, actions and decisions Ensure key information is displayed so that all staff in the Emergency Control Centre are aware of the progression of the incident Highlight key issues to the ECC Co-ordinator / Team Leader
ACTION
1. When alerted, START A LOG, and ensure it is displayed in the ECC.
2. Attend the designated ECC and assist the ECC Co-ordinator and Corporate Lead Officer for Customer Contact to ensure: Information technology is set up and tested, including email / internet access Landline telephones are set up and tested Fax is set up and tested GIS and databases are tested and running Radio Communications are set up and tested (if required)
3. Ensure the computer and projector in the ECC are set up and running.
4. Ensure access to the Emergency Planning area on Cardipoint is available.
5. Project the log onto the board for all in the ECC to see developing issues.
6. At timeouts and on request, make sure any outstanding issues / actions are highlighted to the ECC Chairperson or deputy.
7. Ensure all log entries are timed and dated in order for reviews to be undertaken.
8. Ensure that the log is: Saved on at least an hourly basis Backed up only on a daily basis A print of the activities undertaken is printed at the end of the shift The prints are filed in date / number order for future use
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CORPORATE LEAD OFFICER: CUSTOMER CONTACT
ACTION
1. START A LOG, and record your actions and decisions.
2. To contribute to the efficient running of the ECC and provide support by assisting with any ICT issues, updating the Council website and operating and maintaining GIS Mapping as required.
3. Proceed to the designated Emergency Control Centre or alternate location if required, and ensure that the following facilities are operational: Television for receiving news (Caretakers) Telephone exchange Adequate telephone lines Separate faxes for inward / outward transmission PC, email and printing facilities
4. If requested, arrange to attend the First Emergency Leadership Group Meeting and bring secretarial support.
5. Liaise with the ECC Coordinator to ensure there are ICT staff to attend the Emergency Control Centre to manage and advise on GIS, Website information sharing and application of emails for the extent of the incident.
6. Ensure that the Web Team liaise regularly with the communications team to disseminate relevant information.
7. Provide assistance to the ECC Co-ordinator and Loggist so they are able to carry out their duties as detailed in the ECC Co-ordinator Action Card.
8. Provide, as required, a network for public information through the library service.
9. Assist in the provision of mapping via GIS systems and ordnance survey.
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COMMUNICATIONS MANAGER
ACTION
1. START A LOG, and record your actions and decisions.
2. Establish: a. Who is the lead organisation? b. Facts of incidents? c. Which organisations are involved? d. Amount of media attention likely to attract? e. How long that attention may last? f. Will media centres / briefing points be necessary?
3. Contact Press Office of the lead organisation of incident, discuss response and details of any media centres required, any Council personnel that are able to comment to be at the scene etc. Arrange that a copy of the statement they are releasing be sent to the Council.
4. Formulate press release or statement (if it is appropriate that a response comes from the Local Authority), dependent on that of lead organisation.
5. Seek approval from the Dyfed Powys Local Resilience Forum (strategic group).
6. Release statement to the media, add to section of the Website, and, time permitting, send to Chief Libraries Officer for distribution to all Library Branches and the Leisure Services Manager or the Head of Educational Well-Being for distribution to all leisure centres in Ceredigion.
7. Arrange for all staff involved to be informed of what has been released to the media.
8. Review and update statements at least every three hours, or as significant changes happen. Follow previous procedure, ensuring that Dyfed Powys Local Resilience Forum has approved all movements / changes, and that staff are updated.
9. Continue statement / briefings through initial period, during and up until recovery phase is complete. Daily briefing should be given (or as appropriate, but no less than 1 a day). Further press releases will need to be issued giving arrangements / advice relating to return to normality.
10. Attend debriefing session and ensure that all actions as a result of the meeting are completed as soon as possible.
11. Make arrangements to ensure that all visual / audio and printed records of the event are kept in relation to contributions made by Ceredigion County Council.
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CORPORATE LEAD OFFICER: PEOPLE AND ORGANISATION
ACTION
1. START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the first Emergency Leadership Group meeting and bring secretarial support.
3. Arrange for the staged mobilisation of key staff including Loggists
4. Arrange refreshments and feeding for Emergency Control Centre staff via the Corporate Lead Officer for Schools
5. Ensure security of the Emergency Control Centre via the Group Manager, Property Services
6. Arrange a rota of Emergency Control Centre staff.
7. Arrange to take calls from volunteer staff wishing to contribute to the Emergency response. Co-ordinate and redeploy non-essential staff as required.
8. Arrange the co-ordination of Health and Safety advice, via the Corporate Health and Safety Manager, to Council employees and contractors.
9. Consider the implications of the duration of the incident upon the health, safety and welfare of those responding and the likely budgetary effects.
10. Provide advice on health and hygiene, including at Rest Centres and temporary mortuary facilities.
11. Assist in the safe operation of temporary mortuary premises.
12. Consider with Adult / Children Services, the arrangements for staff counselling.
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EMERGENCY CONTROL CENTRE CO-ORDINATOR (Corporate Lead Officer for Democratic Services or Nominated Deputy)
ACTION
1. START A LOG, and record your actions and decisions.
2. Arrange for the recording and collation of all Emergency Leadership Group Meetings by providing appropriately trained loggists. The incident logs will then provide a chronological record of a Service’s response to an emergency.
3. If requested, arrange to attend the First Emergency Leadership Group Meeting and bring secretarial support.
4. Liaise with the Emergency Planning Duty Officer / Civil Contingencies Officer to ensure the Emergency Control Centre is operational.
5. Liaise with the Corporate Lead Officer for Customer Contact to ensure all communications within the Emergency Control Centre are operational.
6. Ensure, with the aid of Customer Contact Services and the Trained Loggist, that: Information technology is set up and tested, including email / internet access Landline telephones are set up and tested Fax is set up and tested GIS and databases are tested and running Radio Communications are set up and tested (if required)
7. Arrange mobilisation of key staff, in liaison with lead HR officer, ensuring telephony and administrative cover is available for the Emergency Control Centre.
8. Convene special meetings of Elected Members in order to obtain any necessary authority.
9. Ensure recognition by Services of the need for the proper collation of incident logs in preparation for investigations, public inquiries or any Court proceedings and appoint an officer to co-ordinate this task.
10. Assist, if required, in the convening of inter-Service, inter-authority or inter-agency debriefings.
11. Liaise with the Corporate Lead Officer for Legal and Governance Services to arrange provision of advice regarding: Legal obligations when responding to emergencies Authority when responding to emergencies Statements they make in inquiries or investigations; and Statements they intend to make to the media. 12 .Undertake any other actions as requested by the CE or nominated deputy
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CORPORATE LEAD OFFICER: SCHOOLS / LIFELONG LEARNING AND CULTURE
ACTION
1. Appoint a trained loggist to START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the first Emergency Leadership Group Meeting and bring secretarial support.
3. Arrange the mobilisation of key staff and establish a communication link between your Services and the Emergency Control Centre.
4. Consider the implications of the incident on the Services and co-ordinate and guide the actions of any response from schools.
5. Provide premises for utilisation as Rest Centres.
6. Consider the implications of the incident on the service and co-ordinate and guide the actions of any response from leisure services
7. Provide the emergency feeding services as required via Catering Services and liaise with Highways and Environmental Services to provide support.
8. Provide back up to the emergency feeding service through use of school kitchens.
9. Arrange for assistance at Rest Centres and with the management of the children who have been evacuated.
10. Ensure the briefing, as required, of any school representatives.
11. Keep Ceredigion County Council informed of any school closures to ensure the Council website is updated as required.
12. Arrange to assist, in coordination with Adult / Children Services, in any longer term emotional support via the child psychological service.
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CORPORATE LEAD OFFICER: ADULT / CHILDREN SERVICES
ACTION
1. Appoint a trained loggist to START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the first Emergency Leadership Group Meeting and bring secretarial support.
3. Arrange the mobilisation of key staff and establish a communication link between your Services and the Emergency Control Centre.
4. Provide specialist staff experienced in dealing with all aspects of social welfare. 5. Co-ordinate all the agencies operating in the field of social welfare.
6. Establish and manage Rest Centres to cater for the immediate needs of people made temporarily homeless.
7. Assist with specialist transport for evacuees.
8. Arrange for suitable alternative temporary accommodation for special needs cases made homeless as a result of the incident.
9. Assist in providing temporary mid-term accommodation for people made homeless.
10. Provide advice, under relevant legislation to the homeless on alternative accommodation.
11. Assist the Police at “Friends and Relatives” centres.
12. Establish an emotional support service in liaison with the Health Authority and Voluntary agencies.
13. Consider the need for assistance from Voluntary Agencies at Rest, Information or Feeding Centres.
14. Consider the nomination of an officer to liaise with the Police Family Liaison Coordinator (FLC) regarding the arrangements for families of the deceased.
15. Provide an emergency feeding service as necessary through the “Meals on Wheels” service.
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CORPORATE LEAD OFFICER: POLICY AND PERFORMANCE SERVICES
ACTION
1. Appoint a trained loggist to START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the first Emergency Leadership Group Meeting and bring secretarial support.
3. Arrange the mobilisation of key staff and establish a communication link between your Services and the Emergency Control Centre.
4. Provide specialist staff experienced in dealing with: a. Environmental Health b. Food Safety and Animal Health c. Health and Safety d. Trading Standards and Licensing
5. Ensure public food and water supplies are suitable and safe for consumption.
6. Provide specialist advice on hazardous substances via in-house expertise and/or external agencies.
7. Provide advice, via the Petroleum Officer, on Petroleum related incidents
8. Provide advice on the safe collection, storage and disposal of contaminated material and take part in the monitoring of contaminants.
9. Liaise with the Health Authority in any emergency involving danger to public health e.g. communicable diseases or radiological releases.
10. Liaise with the Ministry of Fisheries and Food in incidents relating to animal health e.g. rabies.
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CORPORATE LEAD OFFICER: HIGHWAYS AND ENVIRONMENTAL SERVICES
ACTION
1. Appoint a trained loggist to START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the First Emergency Leadership Group Meeting and bring secretarial support.
3. Arrange the mobilisation of key staff and establish a communication link between your Services and the Emergency Control Centre.
4. Arrange provision of the required manpower, plant and equipment from in-house or external contractors as necessary.
5. Provide transport via in-house vehicles and external transport operators as necessary.
6. Provide assistance in managing traffic movement, including road clearance, closures and traffic diversions.
7. Provide technical support in the assessment of dangerous structures, including temporary repairs, restoration and demolition.
8. Advise transport operators of circumstances affecting their services
9. Provide catering support as required via Facilities to Learning services emergency feeding service
10. Provide additional Security and Cleaning support services as required at any Emergency Rest Centre or other Council premises.
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CORPORATE LEAD OFFICER: FINANCE & PROCUREMENT
ACTION
1. START A LOG, and record your actions and decisions.
2. If requested, arrange to attend the First Emergency Leadership Group Meeting and bring secretarial support.
3. Arrange the mobilisation of key staff and establish a communication link between your Services and the Emergency Control Centre.
4. Advise on all aspects of the financial implications of any incident, including financial management.
5. Co-ordinate, as required, the establishment of a disaster fund.
6. Advise on, and support the use of, information technology in regard to the incident response (use of Council website).
7. Advise on, and support the use of, communications in regard to the incident response including organising the installation of additional telecoms.
8. Co-ordinate the provision of appropriate insurance for all Council employees and supporting Voluntary Agencies.
9. Issue specific financial codes to individual Services to record their expenditure when responding to an emergency.
10. Advise Elected Members and officer as to the sources of finance available to Local Authorities when responding to an emergency e.g. The Emergency Financial Assistance Scheme or European Community Funds.
11. Advise Elected Members and officers on their level of authority to incur expenditure when responding to an emergency.
12. Provide information to officers and members as to the full extent of all matters relating to insurance cover which includes the following: Public Liability Employer Liability Insurance of Volunteers Property Insurance Motor Insurance
13. Provide financial information to individual Services as to the extent of their expenditure after responding to an emergency.
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STRATEGIC CO-ORDINATING GROUP (GOLD) LIAISON OFFICER
Nominated Officer: Chief Executive, Corporate Director or nominated Corporate Lead Officer
Role: Represent Ceredigion County Council at the Gold Strategic Co-ordinating Group (SCG). The SCG will usually be established at the Dyfed Powys Police HQ in Carmarthen.
Responsibilities: Represent Ceredigion County Council at SCG meetings. The Officer may also represent other Local Authorities if the incident crosses administrative boundaries Take responsibility for ensuring that the views and requirements of Ceredigion County Council and local community issues are taken into account at SCG meetings Record and relay relevant information to the Emergency Leadership Group and Emergency Control Centre as appropriate Co-ordinate the recovery phase by chairing the Recovery Working Group.
ACTION
1. Ensure a log is commenced to record actions and decisions, and that this is shared with the Emergency Leadership Group and the Emergency Control Centre. Appoint a trained Support Officer with communication equipment to perform this role.
2. Make arrangements to attend SCG and ensure the Emergency Control Centre or the Community Safety and Civil Contingencies Unit have also appointed: Support Officer Environmental Health Officer for the Scientific & Technical Advice Cell (STAC), if required Support for the Recovery Working Group (RWG) if required 3. Ensure a rota is organised to maintain cover at SCG / RWG / STAC.
4. Attend the SCG as requested by Dyfed Powys Police and notify the Emergency Control Centre on arrival.
5. Ensure regular exchange of information and tasking to the Chief Executive / Emergency Leadership Group.
6. Liaise with representatives in the RWG and STAC as appropriate.
7. Formally accept handover of the incident at the conclusion of the emergency phase. Ensure time and terms of handover are logged.
8. Co-ordinate the recovery phase of the incident as necessary.
9. Attend debrief.
Equipment: Laptop, Mobile Phone and charger, ID, Recovery Working Group and STAC guidance
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STRATEGIC CO-ORDINATING GROUP (GOLD) SUPPORT OFFICER
Nominated Officer: Suitably trained staff (as available)
Role: To provide support to the Chief Executive, Corporate Director or nominated Corporate Lead Officer representing Ceredigion County Council at the Strategic Co-ordinating Group (SCG) or other high level meetings.
Responsibilities: Provide support to Chief Executive or Deputy representing Ceredigion County Council at the SCG Record and relay relevant information to and from the Emergency Leadership Group / Emergency Control Centre as appropriate on behalf of the Gold Liaison Officer Ensure an accurate log is kept, recording any issues or decisions pertinent to Ceredigion County Council Liaise with the Recovery Working Group (RWG) or Scientific & Technical Advice Cell (STAC) on behalf of the Gold Liaison Officer
ACTION
1. Attend SCG as requested by Dyfed Powys Police and notify the Emergency Control Centre on arrival.
2. Ensure a link to the Emergency Leadership Group is available from the SCG for exchange of information.
3. Ensure a rota is organised to maintain cover at SCG / RWG / STAC.
Equipment: Laptop, Mobile Phone and charger, ID, RWG and STAC guidance
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AGENDA FOR THE FIRST EMERGENCY LEADERSHIP GROUP MEETING
1. Introduction by the Chief Executive or nominated Deputy. 2. Situation Report covering the nature of the incident, and details known. 3. Situation Reports from all Corporate Lead Officers on actions to date. 4. Identify the initial requirements for the response. 5. Consider establishing a Recovery Group in order to begin the recovery process.1 6. Consider activating Business Continuity Plans. 7. Consider potential financial implications of the incident on Local Authority finances and establish a financial management system to aid speedy recovery of expenditure. 8. Identify the likely media demands on the Council itself and its role in the joint agency media response. Confirm the content of an initial Press Release. 9. Agree and establish links with the National Assembly for Wales, Government Departments, Assembly Members, County Councillors, Members of Parliament and other agencies as relevant or appropriate. 10. Establish a procedure for regular situation updates from the Councils Emergency Control Centre. 11. Agree timing and representation at next meeting. The frequency of and representation at meetings will vary according to the nature and extent of Council involvement. 12. Agree a policy that any interviews given by staff are notified to the Corporate Communications Manager.
SUGGESTED STANDING AGENDA FOR SUBSEQUENT MEETINGS The following is the standing agenda developed for Dyfed Powys LRF Gold Group meetings: Matters requiring urgent decisions / actions Follow up on actions from previous meeting What has happened since last meeting Updates and review from stakeholders Information needs Strategy for press handling Hazard prediction and evacuation plans Contingencies / what ifs Demands from Silver / Bronzes Overall strategy (short / medium / long term) Any other business Arrangements for next meeting
1 See section 7.16 (Recovery Working Group) of the Dyfed Powys Joint Major Incident Procedures Manual & Dyfed Powys LRF Guidance on Recovery from a Major Incident.
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FOREWORD BY THE CHIEF EXECUTIVE
This Major Incident Plan describes the operational response of Ceredigion County Council at the time of an emergency. It has been prepared in accordance with the Civil Contingencies Act, 2004 (CCA).
As Chief Executive, I accept executive responsibility for Emergency Planning as defined by the Civil Contingencies Act.
Ceredigion County Council develops its strategic, tactical and operational response in co- operation with partner agencies in the Local Resilience Forum.
This Major Incident Plan has been adopted and approved by the Leadership Group. The arrangements in this plan form the basis of the Authorities response by the Authority to a Major Incident.
It presents the Authority with the very best opportunity of continually improving our response, and the level of care we provide, to the victims of Major Incidents. Also, we need to ensure that we reflect key elements of the Major Incident Plan within our Service Plans.
The plan is supported by individual Action Cards and specific Contingency Plans. Elements of the plan will be subject to training, practice and exercise in a variety of ways. Debriefing of, and feedback will ensure that this Major Incident Plan remains up to date and relevant. By its very nature this plan will be subject to frequent review and, if necessary, revised to reflect the changing requirements of the Authority.
The information contained in this Plan offers guidance and direction, but every incident will also require staff to display flexibility, professionalism and initiative.
All key staff should familiarise themselves with the contents of this plan, not only as preparation for their response to an incident, but to feed-back useful information and suggested improvements.
Ceredigion County Council develops its strategic, tactical and operational responses in cooperation with partner agencies in the Dyfed Powys Local Resilience Forum
By its very nature this plan will be subject to frequent review and, if necessary, revised to reflect the changing requirements of the Authority.
Enquires about this document should be made to:
Community Safety and Civil Contingencies Unit Penmorfa Aberaeron SA46 0PA
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COPYRIGHT
This document, whether complete or in part, may not be reproduced, stored in a retrieval system, or transmitted in any form or by any means (electronic, mechanical, photocopying, recording or otherwise) without the prior written permission of the copyright owner. Bona fide students undertaking study, or private persons, may make a single copy for the purposes of personal research without recourse to the copyright owner. In addition, permission has been granted by other copyright owners for their information to be included in this document and this is acknowledged in the appropriate places. It follows, therefore, that permission must be sought from the appropriate originating copyright owner and not from the copyright owner of this document.
DOCUMENT CONTROL
This Plan is stored on a secure server within the jurisdiction of the Community Safety & Civil Contingencies Unit. Key partners within the Authority have access to this server and are able to download their respective plan. Access to this server is controlled by the Community Safety & Civil Contingencies Unit and IT.
The Community Safety & Civil Contingencies Unit is responsible for developing and maintaining this plan. Key partners will be advised of amendments and it is their responsibility to update their copy of the plan and complete the amendment record.
Key internal and external stakeholders were consulted during compilation and, where appropriate, will be included during its annual review.
Version Date Status 4.0 Aug 2015 Major update and review after organisational changes and restructuring 4.1 Sep 2015 Introduction of the Deputy Chief Executive. 4.2 Nov 2015 Updating of Action Cards 4.3 Feb 2016 JESIP use of METHANE 4.4 Mar 2016 Review of Catering arrangements to Learning Services 4.5 Jun 2016 Review of ECC Co-ordinator and Loggist 5.0 Sep 2016 Published at EBC Management Group 5.1 Mar 2017 MI Definition 6.0 Sep 2017 Annual Review 7.0 Sep 2018 Reviewed and Updated to reflect new Organisational Structure
Review Date: This document will be reviewed annually or in light of any emerging guidance / lessons learnt, and re-issued when changes are made.
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REVIEWING AND UPDATING THE PLAN
This Plan is formally reviewed annually. However, amendments may be issued more frequently in the event of new guidance, legislation or as a result of experiential learning from exercises and incidents.
This Plan will be regularly tested both internally and externally with other agencies. A detailed debrief report will be produced following such exercises and any major lessons learnt will be incorporated into the Plan.
Proposals for changes or additions to the contents of this Plan may come from any source and any level within the Authority. Where proposals are made by staff they should be put in writing to the Community Safety & Civil Contingencies Unit outlining why the change is considered necessary with full supporting documentation where appropriate.
Published documents will always be produced in a PDF format. Holders of previous versions of this Plan are requested to remove any old copies, either manual or electronic, and replace them with the latest revised versions. Previous superseded documents or electronic copies should be destroyed to avoid confusion or the use of outdated information.
Overview
As a Category 1 Responder with statutory Emergency Planning and Community Resilience responsibilities, Ceredigion County Council must have in place a plan which guides its response should an emergency impact on the organisation itself or the community it serves. It is also required to support the actions of the Emergency Services and any other authority that may require assistance as a result of an emergency or incident in their area.
Every emergency or Major Incident is different, so it is impossible to write a plan that can cover every eventuality. Despite this, the Council must respond in a rapid, effective, efficient and co-ordinated manner whatever the emergency may be. The Plan seeks to facilitate this, by identifying the process that will be put in place, by clarifying who will be accountable for what, and highlighting precisely what the Council’s role will be in working with the other key players, who will inevitably be involved in responding to the incident or emergency.
This Plan does not stand alone. It is complementary to the Major Incident Plans prepared by other local authorities surrounding Ceredigion. It also links directly with the planning arrangements and protocols that have been put in place by the Dyfed Powys Local Resilience Forum (LRF) Partnership Team, the Emergency Services, Government departments, Health Trusts and major utility companies. It is also important to note that this Plan is a generic framework and each Service Unit should have its own, more detailed, emergency procedures.
Management of the Plan
The Plan is not a static document. Changes in legislation, staffing, the lessons learnt from incidents as well as from exercises, both within Ceredigion and elsewhere and the changing policies and procedures of our key partners will all mean that the Plan will need to be amended from time to time.
It is also essential that 24 hour contact can be established with key staff and all other organisations with whom the Council may have to work. The Community Safety & Civil Contingencies Unit manages the maintenance of the contact details on a quarterly basis with reminders being sent to key partners to update their records. The amended versions are sent out on a quarterly basis in soft copy.
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Training
It is vital that all staff are aware of the Plan’s existence and their own role within it, should an emergency arise. Key staff will be provided with periodic training, which will be arranged by the Community Safety & Civil Contingencies Unit.
Distribution
This Plan will be made available for viewing or downloading internally via CardiPoint and externally to other Agencies via Resilience Direct.
Responsibilities
Whilst Community Safety and Civil Contingencies has the responsibility in producing the plan and training staff to understand and use the plan, it is the responsibility of all services managers to ensure their staff are aware and trained in their roles in order that the plan can be delivered when an emergency arises.
AIM
The aim of the Major Incident Plan is to provide guidance to Council Officers and Services on the procedures and actions that will be put in place in the event of a Major Incident or Emergency.
OBJECTIVE
The Plan seeks to address the following objectives: To clarify what a Major Incident is and the stages that are likely to occur before, during and after an emergency To highlight the roles and responsibilities of those who are likely to be involved in responding to a Major Incident To detail the Council’s corporate response to an emergency and more specifically, the role of its services, as well as certain responding staff within the organisation To identify the necessary co-ordination with external agencies involved with a Major Incident; and To clarify the communications systems and resources that are available in the event of a Major Incident.
Scope of the Major Incident Plan
This plan details the arrangements to be implemented by Ceredigion County Council in response to the declaration of a Major Incident within Ceredigion.
Activation points for the plan are clearly identified in the document and it clearly identifies the key roles and responsibilities of services within the authority as well as external agencies and stakeholders. The plan is designed to offset/mitigate the effects of a Major Incident.
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CONTENTS
Disclaimer...... 2
ACTION CARDS Emergency Planning Duty Officer...... 3 Chief Executive / Corporate Director...... 4 Trained Loggist...... 5 CLO: Customer Contact……………...... 6 Communications Manager...... 7 CLO: People and Organisation...... 8 Emergency Control Centre Co-ordinator...... 9 CLO: Schools / Lifelong Learning and Culture...... 10 CLO: Adult / Children Services...... 11 CLO: Policy and Performance Services...... 12 CLO: Highways and Environmental Services...... 13 CLO: Finance and Procurement………………………………………………………… 14 Strategic Co-ordinating Group (Gold) Liaison Officer...... 15 Strategic Co-ordinating Group (Gold) Support Officer...... 16 Agenda for First Emergency Leadership Group Meeting……………………………..17 Foreword from the Chief Executive...... 18 Plan Administration ………………………………………………………………….....19/20 Aim, Objective & Scope of the Plan...... 21 Contents …………………………………………………………………………………22/23
SECTION 1 –THE BACKGROUND TO THE PLAN 24 & CIVIL CONTINGENCIES IN WALES Background and General Policy ……………………………………………………… . 24 Civil Contingencies Act, 2004 ……………………………………………………..….25/26 Civil Contingencies Structure in Wales ...... 27 The Legal and Financial Position ...... 28
SECTION 2 – DECLARING A MAJOR INCIDENT 29 Declaration of a Major Incident ...... 29 Alert Procedures Diagram ...... 30 Major Incident Terminology ...... 31 Major Incident Activation Levels ...... 32
SECTION 3 – COMMAND AND CONTROL 33 Multi-Agency...... 33 Ceredigion County Council ……………………………………………………………33/34 Wider Response METHANE ………………………………………………………… ... 35 Cross Border Co-ordination ...... 36
SECTION 4 – KEY ROLES AND RESPONSIBILITIES 37 Common Objectives ...... 37 Ceredigion County Council ...... 37 Other Agencies ...... 40
SECTION 5 – KEY ACTIVITIES 41 Accommodation ...... 41 Feeding ...... 42 Crisis Support ...... 43 Page 22 of 66 Classification NOT PROTCTIVELY MARKED Ceredigion County Council Major Incident Plan September 2018
Information / Media ...... 45 Works Service ...... 47 Finance ...... 48 Legal and Administrative Support ...... 50
SECTION 6 – EVACUATION 53 Information ...... 53 The Decision to Evacuate ...... 53 Informing the Public ...... 54 Rest Centres ...... 54 Re-Occupation ...... 54
SECTION 7 – EMERGENCY REST CENTRES 55 Information ...... 55 Activation ...... 55 Rest Centre Boxes ...... 55 Registration of Evacuees ...... 55 Emergency Feeding ...... 55 Voluntary Sector Assistance ...... 56 Faith Community Support ...... 56 Overnight / Sleeping Arrangements ...... 56 Education and Training ...... 56
SECTION 8 – EMERGENCY CONTROL CENTRE 57 Location ...... 57 Access ...... 57 Staffing ...... 57 Storage of Equipment ...... 57
SECTION 9 – TEMPORARY MORTUARY 58 Location ...... 58 County Council Role ...... 58 Dyfed Powys Mass Fatalities Plan ...... 58
SECTION 10 – DEBRIEFS 59 Roles and Responsibilities ...... 59 Organisation ...... 59
SECTION 11 – TRAINING AND EXERCISE 61
APPENDICES Appendix A List of Other Emergency Plans (County and Dyfed-Powys)
Appendix B Accountancy Arrangements Memorandum
Appendix C Dyfed Powys Local Resilience Forum Incident Log Sheet
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SECTION 1 – THE BACKGROUND TO THE PLAN AND CIVIL CONTINGENCIES IN WALES
BACKGROUND AND GENERAL POLICY
1.1 Ceredigion County Council accepts its responsibility to ‘care’ for the population in emergency situations. The Council is prepared and will continue to develop plans capable of dealing with a range of eventualities, including Major Incidents, which are the primary focus of this Plan.
1.2 The Council does, however, have a range of plans to deal with specific emergencies; a list of these is available at Appendix A. This Plan is prepared to respond to the declaration of a Major Incident and does not specify differing responses to differing circumstances.
1.3 Major Incidents can arise from a wide range of potential hazards including:
Natural disasters and Health / Disease o Flooding from fluvial and coastal sources o Severe snow conditions o Severe storms accompanied by high winds o Unstable lands o Pandemic influenza o Animal health e.g. Foot & Mouth, Rabies
Transport o Road and rail networks throughout the County o Marine activities around the coastline o Air traffic – Civil and military o Industry: Potential emergencies on-site or involving chemicals in transit o Conveyance of hazardous materials via transport and pipelines o Dam fractures o Lead mine shafts o Technological failures o Terrorist activity – potential has to be recognised in the current climate
1.4 These incidents may occur within or outside the County. It is the impact upon the County and not the geographical location of the incident that is relevant. This may be particularly applicable to organised activities conducted outside the County.
1.5 In responding to these incidents the County Council is aware that it must work in partnership with other organisations, particularly the Emergency Services. This Major Incident Plan integrates with the established Joint Major Incident Procedures Manual for the Dyfed Powys area, which sets out the principles of the multi-agency response to Major Incidents. Both documents recognise that the role of each organisation will be affected by the nature of the incident and the different stages of the response. For the County Council this could change its role from one of being supportive to the Emergency Services, to undertaking the lead role (particularly in relation to the recovery phase).
1.6 Whilst Major Incidents are the primary focus of this plan, it is fully recognised by Ceredigion County Council that other emergency situations can arise, which, although not yet sufficiently serious to warrant the implementation of Major Incident Procedures, requires of it a significant response. The Plan, therefore, is sufficiently flexible to cope with these lesser situations, since a lack of immediate attention could well result in an escalation of an innocuous situation into something far more serious. Page 24 of 66 Classification NOT PROTCTIVELY MARKED Ceredigion County Council Major Incident Plan September 2018
It should be emphasised that lesser incidents should be addressed by individual departmental emergency response plans.
CIVIL CONTINGENCIES ACT 2004
1.7 Following the fuel crises and the severe flooding in the autumn / winter of 2000, and the outbreak of Foot and Mouth Disease in 2001, the Deputy Prime Minister announced a review of emergency planning arrangements. The review included a public consultation exercise, which reinforced the Government’s conclusion, that existing legislation no longer provided an adequate framework for modern civil protection efforts, and that new legislation was needed.
1.8 After public consultation and pre-legislative scrutiny by a Joint Parliamentary Committee, the Civil Contingencies Bill was introduced to Parliament on 7 January 2004. The Bill received Royal Assent on 18 November 2004 and henceforth became known as the Civil Contingencies Act 2004 (CCA 2004).
1.9 Prior to the CCA 2004, Civil Protection activity, at the local level, was covered mainly by Civil Defence legislation dating from 1948, including the Emergency Powers Act 1920, neither of which clearly covered terrorist threats, or threats to the environment. In modernising the legislation, it was necessary to introduce a new updated definition of an emergency, which focuses on the risks faced in the 21st century.
1.10 The definition of ‘Emergency’ in the Act focuses on the consequences of emergencies. It defines an ‘Emergency’ as: An event or situation which threatens serious damage to human welfare An event or situation which threatens serious damage to the environment War, or terrorism, which threatens serious damage to security.
1.11 The CCA 2004 divides Local Responders into two categories depending on the extent of their involvement in civil protection work, and places a proportionate set of duties on each:
Category 1 Responders
1.12 Often referred to as ‘Core’ or ‘Main’ Responders, these are those organisations at the core of Emergency Response (e.g. Emergency Services, Local Authorities, and The Environment Agency). Category 1 responders are subject to the full set of Civil Protection duties. They are required to: Assess the risk of emergencies occurring and instigate contingency planning Create and establish Emergency Plans Establish Business Continuity Management (BCM) arrangements Formulate arrangements to warn, inform and advise the public in the event of an emergency Share information, co-operate, and liaise with other Local Responders to enhance co-ordination and efficiency; and Provide BCM advice and assistance to local businesses and Voluntary Organisations (Local Authorities only).
Category 2 Responders
1.13 Often referred to as ‘Co-operating’ or ‘Supporting’ Responders, these organisations (e.g. Health and Safety Executive (HSE), transport and utility companies) may become involved in a Major Incident to support Category 1 Responders that affect
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their sector. Category 2 Responders have a lesser set of duties. They are required to: Co-operate and share relevant information with other Category 1 and 2 Responders; and Employ their resources to assist Category 1 Responders in an emergency, if requested.
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CIVIL CONTINGENCIES STRUCTURE IN WALES
UK central government crisis management machinery (facilitated by the Cabinet Office)
Lead UK government Other devolved administrations department and government departments
Wales Civil Contingencies Committee (facilitated by the Welsh Government
North Wales Gwent Strategic Strategic South Wales Dyfed Powys Co-ordinating Co-ordinating Strategic Strategic Group Co-ordinating Co-ordinating Group Group Group
Pembrokeshire Carmarthenshire Ceredigion Powys County County Council County Council County Council Council
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THE LEGAL AND FINANCIAL POSITION
1.14 Category 1 and 2 responders are required to come together to form Local Resilience Forums (LRFs) based upon Police Force areas, which are intended to enhance co- ordination and co-operation between responders at a local level.
1.15 The Local Government Act of 1972, Section 138, whilst not relating specifically to emergencies, is the general power that enables the Council to incur whatever expenditure it considers necessary, without the prior consent of the Secretary of State. Although it is incumbent upon the Council to inform him as soon as possible when an emergency or disaster involving destruction of, or damage to, life or property occurs, is apprehended or is imminent.
1.16 The Local Government and Housing Act 1989, Section 156, gives legal authority to the Council to undertake contingency planning to deal with a possible emergency, if the Council is of the opinion that such planning is appropriate.
1.17 Local Authorities have a general duty of care to maintain public services and to assist local residents in distress.
1.18 There are other legal responsibilities relating directly to the various functions of Local Government. These responsibilities, which underpin the Councils’ normal functions, continue to be applicable in emergencies.
1.19 The Local Government and Housing Act 1989, Section 155 gives legal base to the Emergency Financial Assistance Scheme (EFAS), formerly known as the “Bellwin Scheme”. The EFAS is a discretionary scheme, which may be activated to give special financial assistance to Local Authorities that would otherwise be faced with an undue financial burden of providing relief and carrying out immediate work due to large scale emergencies.
CRIME AND DISORDER ACT 1998 – SECTION 17
1.20 Without prejudice to any other obligation imposed on it, it shall be the duty of each authority to which this section applies to exercise its various functions with due regard to the likely effect of the exercise of those functions on, and the need to do all that it reasonably can to prevent crime and disorder in its area.
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SECTION 2 - DECLARING A MAJOR INCIDENT
DECLARATION OF A MAJOR INCIDENT
2.1 A Major Incident is an event or situation, with a range of serious consequences, which requires special arrangements to be implemented by one or more emergency responder agencies, for the: Rescue, treatment and transportation of a large number of casualties Involvement either directly or indirectly of large numbers of people Handling of a large number of enquiries likely to be generated both from the public and the news media, usually addressed to the Police; Need for the large scale combined resources of two or more of the Emergency Services; and Mobilisation and organisation of the Emergency Services and supporting services, e.g. Local Authority, to cater for the threat of death, serious injury or homelessness to a large number of people. Any occurrence which represents a serious threat to the health of the community or causes [or is likely to cause] such numbers or types of casualties as to require special arrangements to be implemented by hospital, ambulance services or health bodies.
2.2 More often than not Major Incidents by their nature will be ‘Sudden Impact’ incidents, which occur with a minimum of warning. The impact of these types of incidents on the emergency services is immediate and increases rapidly. Examples of this type of incident could include terrorist attacks, aircraft and rail incidents
2.3 An emerging threat or ‘Rising Tide’ type incident develops from a ‘steady state’ or ‘business as usual’, to become an emergency or Major Incident over a period of time, which may range from hours to days or weeks. Examples of this type of incident include severe weather events or disease epidemics
2.4 A Major Incident can be declared by any officer from a Dyfed Powys LRF Category 1 and Cat 2 responder organisation who considers that the incident satisfies any of the criteria outlined as above.
2.5 The initiation of Ceredigion County Councils Major Incident Plan may only be made by the Chief Executive or a nominated deputy. This is likely to be done in conjunction with the Community Safety & Civil Contingencies Unit in order to aid assessments and implementation in conjunction with other response agencies.
2.6 If declared within office hours then the first point of contact for the emergency services is likely to be the Community Safety & Civil Contingencies Unit.
2.7 Out of hours, the Emergency Planning Duty Officer (EPDO) is likely to be the first point of contact and will activate the procedures. The alerting procedures both in and out of hours are laid down in a flow diagram below.
For a full comprehensive definition, refer to:
Dyfed Powys Local Resilience Forum Emergency Command Protocol
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ALERT PROCEDURES DIAGRAM
Initial Alert Call
Call passed to Civil Contingencies or / EPDO
Notify the Chief
Executive or nominated
deputy
Declaration of Major Incident
Activation of Ceredigion County Council Major Incident Plan
2.6 All service and support units will contribute in a corporate manner should the incident require their specialist skills, or more generalised support. Effective liaison is essential during a Major Incident. Council staff will therefore be deployed to work with the Police and other agencies, and specific roles have been identified to support this requirement. Liaison Officers may be required at all three command levels of the incident – Gold, Silver and Bronze.
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MAJOR INCIDENT TERMINOLOGY
2.7 The following terminology is often used by the Emergency Services during a Major Incident:
MAJOR INCIDENT “STANDBY” – A formal request to be ready to respond
N.B: It must not be assumed that the next stage will automatically follow, as an incident can move directly from ‘Standby’ to ‘Stand Down’.
MAJOR INCIDENT “DECLARED” ACTIVATE PLAN – Full Activation of Major Incident Plan
MAJOR INCIDENT “CANCELLED” – This message rescinds either of the first two messages at any time
MAJOR INCIDENT “STAND DOWN” – Incident finished / over or contained by the Emergency Services
MAJOR INCIDENT SCC ACTIVATION LEVELS
2.8 The Dyfed Powys Local Resilience Forum (LRF) has agreed to recognise the following four levels of alert when dealing with Major Incidents / Emergencies.
Level 0 – Normal business as usual – no action required Level 1 – Potential Major Incident / Emergency
o Dyfed Powys Police (DPP) Civil Contingencies and Operational Planning Unit will monitor and liaise with the Lead Agency for the incident (if DPP is not the lead agency). o Consideration will be given with a view to arranging a multi-agency co-ordination group meeting. The multi-agency co-ordination group will determine progression to Level 2 or agree to remain at Level 1 and monitor the situation. o In both instances, members of the multi-agency co-ordination group will inform their respective strategic commanders. o Any lead agency or other associated LRF organisation may instigate this process if they have identified a potential Major Incident or Emergency by contacting Dyfed Powys Police Civil Contingencies and Operational Planning Unit. o Civil Contingencies / Operational Planning staff from all LRF organisations may be dedicated to supporting these preparations in order to ensure that proportionate arrangements are put in place should a multi-agency response be required.
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Level 2 – Developing Major Incident / Emergency (‘rising tide’ incident)
o At Level 2 the incident has started to have an impact on Dyfed Powys LRF area or a single LRF organisation that has identified implications / potential implications for more than one LRF organisation. o At this level, a Strategic Co-ordinating Group meeting will be convened in the SCG meeting room within the Dyfed Powys SCC building based at Dyfed Powys Police HQ. This could be via video / tele-conferencing. o Partial Strategic Co-ordination Centre (SCC) will be activated to support this initial SCG meeting (reception / administrative support etc). o Dyfed Powys Police on-call Gold Command will activate Alert Level 2 as lead agency or on behalf of any other LRF associate organisation identified as the lead agency. o The SCG will determine progression to Alert Level 3 or ensure that arrangements are put in place at Level 2 for a proportionate multi-agency response (Command, Control and Co-ordination).
Level 3 – Major Incident / Emergency declared (‘sudden impact’ incident)
o At this level the Strategic Co-ordination Centre will be fully activated in accordance with the Dyfed Powys SCC Activation Plan and User Guide. o The Police Gold Commander will authorise activation of the SCC through the Gold Control Room Co-ordination (HQ Operations Senior Officer / Superintendent on-call) who will contact the SCC Co-ordinator who has the responsibility to establish the staffing and equipment requirements of the SCC. o Dependent on the scale and nature of the incident, the Police Gold Commander will determine the organisations required at the SCC. o There is no requirement for the Alert Levels to be sequential, or for any particular incident to pass through all four levels. For example, a ‘rising tide incident’ may pass through 0 to 1 to 2 to 3, whereas a ‘sudden impact incident’ may pass from 0 directly to 3.
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SECTION 3 - COMMAND AND CONTROL
MULTI-AGENCY
3.1 It is possible during the initial stages of the incident that members of one service will spontaneously carry out tasks normally the responsibility of another. As Incident Management progresses, each service can be expected to establish command and control of the functions for which it is normally responsible.
3.2 Emergency responders adopt levels of command when responding to incidents. The level does not convey seniority or rank but the level of command an individual has at the incident. The generic tiers of command and basic responsibilities are as follows.
Strategic (Gold) – where strategy and policy is determined. Normally at a Control Centre away from the scene. Meetings will normally be co-ordinated by the Police and held at Dyfed Powys Police HQ. In certain circumstances Ceredigion County Council will undertake this co-ordinating role as a result of the nature or phase of the incident. Tactical (Silver) – where the strategy set by Gold is implemented by the issue of tactical instructions and the allocation of resources e.g. Incident Command Centre. Operational (Bronze) – where resources are deployed and operational tasks performed in accordance with Silver’s tactical instructions e.g. Rest Centre.
3.3 In most cases Police have the responsibility for the overall command and control of the incident scene. However, other responding organisations will carry out their specialist duties in accordance with their roles and responsibilities.
3.4 The command and control structure encourages all responders to the incident to adopt a multi-agency approach and to work together and co-ordinate their activities.
3.5 Ceredigion County Council is responsible for the overall co-ordination of the personnel and resources of the County Council through the Emergency Leadership Group and Emergency Control Centres. Local Authorities can be represented at any or all of the joint services command levels of Gold, Silver and Bronze.
3.6 A detailed breakdown of the multi-agency command and control structure is available in the Dyfed Powys Joint Emergency Services Major Incident Procedures document.
CEREDIGION COUNTY COUNCIL
3.7 The extent of the Councils’ involvement in a Major Incident can vary enormously, ranging from a relatively minor role, acting in support of the Emergency Services, to undertaking the lead role. It is essential that the Council maintains a flexible management system capable of reflecting the extent of its actual role. Whilst this plan sets out a standard management response, it also enables extension or retraction according to the prevailing circumstances.
3.8 Whilst the Council would participate in multi-agency command and control, it would also need to apply the Strategic, Tactical and Operational concepts to its internal arrangements.
3.9 Co-ordination during the initial stages of a Major Incident will be achieved via the Emergency Planning Duty Officer (EPDO) as this system provides the Emergency Services with a single point of contact for Local Authorities. In addition to alerting the Chief Executive and Chief Officers, the EPDO will initiate immediate actions required
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of the Council in consultation with the Chief Executive or a nominated deputy. The EPDO will act as the link with the Emergency Services and other agencies until Ceredigion County Councils’ Emergency Control Centre at Penmorfa is operational and can undertake this co-ordinating role.
Strategic (Gold) o The Emergency Leadership Group is the basis of the Strategic Co- ordinating (Gold) Group of Ceredigion County Council. o This initial meeting would assess the response required of the Council and determine strategy. The extent of Council involvement will determine the ongoing frequency and agenda of these meetings. The Chief Executive may limit or expand the membership of the Gold Group according to the needs of the incident. o It will not remain in permanent session. Ongoing management of the incident will be conducted by senior representatives of the relevant departments, co-ordinated by the Chief Executive, or a nominated representative, in accordance with the strategy determined by the Gold Group. o The Emergency Control Centre at Penmorfa will provide the location for the initial meeting of the Gold Group. It will, if required by the nature of the incident, also act as the central base for its ongoing management. o Elected Members will interface with the Gold Group via the Cabinet. The Chief Executive, in conjunction with relevant Chief Officers, will consult the Cabinet on key strategic issues.
Tactical (Silver) o In the event of a Major Incident it is essential that a Local Authority Liaison Officer attends the Silver Control established by Dyfed Powys Police. This person will represent Ceredigion County Council and feedback essential information to the Emergency Control Centre at Penmorfa. o The extent of the Councils’ involvement may well determine the establishment of Service Emergency Centres. These centres would represent Local Authority Silver, controlling the response of Service personnel and resources and liaising with the Emergency Control Centre at Penmorfa who retain the responsibility to ensure effective co-ordination of the Councils’ overall response.
Operational (Bronze) o The Bronze level relates to any aspect of the Councils’ on the ground response. This may manifest itself in a variety of roles e.g. Rest Centre management, road clearance, counselling. Their interface will be direct to their respective Service Emergency Centres, if functional, or if not, their link will be to the Emergency Control Centre at Penmorfa.
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Wider Response
Joint Emergency Services Interoperability Programme (JESIP)
JESIP is focussed on the interoperability of the emergency services in the early stages of a major or smaller incident and should make the integration of other responders activities more efficient.
When the emergency services and partner organisations respond to incidents each organisation brings their own expertise to the situation. JESIP aims to improve how partner organisations work together at the scene of an incident. The use of the METHANE model will improve both the reporting and receiving of information in a consistent way benefiting form an increased level of awareness about the situation at the incident scene.
SHARED SITUATIONAL AWARENESS – M/ETHANE In the initial stages, pass information between emergency responders and control rooms using the M/ETHANE mnemonic/
METHANE is now the recognised common model for passing incident information between services and their control rooms. Ceredigion staff who may be involved in an incident should be familiar with the use of METHANE.
JESIP has instigated the use of a common model which will mean information can be shared in a consistent way, quickly and easily, whoever the information is passing between.
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CROSS BORDER CO-ORDINATION
3.10 The extent of any Major Incident may not be restricted within the borders of Ceredigion. The neighbouring authorities of Carmarthenshire, Pembrokeshire, Powys and Gwynedd may also be involved. Arrangements have therefore been made to co-ordinate the response with these authorities by immediately alerting the appropriate Emergency Planning Officer and establishing communication links with appropriate Local Authority personnel.
3.11 Ceredigion County Council has formalised a mutual aid agreement with Pembrokeshire, Carmarthenshire, Powys and Gwynedd County Councils. The agreement was signed and a copy is held by the Community Safety & Civil Contingencies Unit in Penmorfa.
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SECTION 4 - KEY ROLES AND RESPONSIBILITIES
COMMON OBJECTIVES
4.1 All Emergency Services and supporting agencies responding to a Major Incident will be working to provide a co-ordinated response through these common objectives: To save life and alleviate suffering associated with the incident, at the scene and elsewhere To prevent the incident from escalating To safeguard the environment To facilitate a joint co-ordinated approach through liaison To protect and preserve the scene To provide a joint response to the media To prevent or minimise the adverse effects on the health and welfare of those involved in the incident To gather and collate information To update friends and relatives on relevant issues To investigate the cause To contribute to the debriefing process and subsequent investigation / inquiries To maintain the service normally provided To provide continued support, welfare and liaison to all involved in the incident after the initial response; and To restore normality after all necessary actions have been taken.
4.2 These common objectives should be achieved in conjunction with the primary roles and responsibilities of each Agency / Organisation responding.
CEREDIGION COUNTY COUNCIL
4.3 The Chief Executive and the Emergency Leadership Group have the responsibility of co-ordinating the Local Authority corporate response. Their activities will be supported by a Leadership Support Team. Each Corporate Lead Officer involved in the incident will also have a Corporate Support Team who will co-ordinate the activities of that particular service delivery in accordance with Corporate Area Procedures.
4.4 Chief Executive / Corporate Director To lead Ceredigion County Council’s Management response and determine the makeup of the Emergency Leadership Group i.e. need for Liaison Officers from external organisations To provide overall co-ordination of the personnel and resources To liaise with the LRF Gold Group To lead the overall multi-agency response, including the recovery and restoration of the scene Activate a temporary mortuary if applicable To liaise with Elected Members via the Cabinet; and To assist in the organisation of VIP visits in liaison with the Police.
4.5 Community Safety & Civil Contingencies Unit
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To facilitate, through the Emergency Planning Duty Officer (EPDO), the alerting of the Councils Emergency Leadership Group and the initial co- ordination of the Councils response to the incident To arrange the preparation of the Emergency Control Centre at Penmorfa on behalf of the Chief Executive To advise the Emergency Leadership Group as required throughout the incident To arrange, on behalf of the Chief Executive, the necessary debriefs on a corporate and multi-agency level; and To activate and co-ordinate the voluntary sector and the faith communities.
4.6 Customer Contact To advise on, and support the use of, information technology in regard to the incident response, including GIS and Web Support To advise on, and support the use of, communications in regard to the incident response; and To facilitate, as required, the provision of public information through the library network.
4.7 Communications Manager To liaise with lead organisation’s communications team to co-ordinate media and public statements and to arrange the establishment of a media centre(s) To co-ordinate and send statements to the media on behalf of the Council Keep staff of the authority updated on the Council’s response and make them aware of the corporate strategy; and Together with the ICT Web Team ensure that all the relevant information is placed on the Council’s website.
4.8 People and Organisation To co-ordinate, with the Corporate Health and Safety Manager, Health and Safety advice to Council employees and contractors; and To co-ordinate support services for the Emergency Control Centre i.e. Security, catering and cleaning. To co-ordinate and redeploy non-essential staff, where required. To assist in the safe operation of temporary mortuary premises
4.9 Democratic Services To provide legal advice and services to the Authority during any emergency To provide service to any Committee called as a result of an incident To provide trained telephonists to manage the incoming calls serving the Emergency Control Centre (ECC) To assist in the provision of translation services (multi-lingual)
4.10 Schools / Lifelong Learning and Culture To consider the implications of the incident on the education service and to co-ordinate and guide the actions of any response from schools To assist, in co-ordination with Adult / Children Services, with the provision of emotional support via the School Counselling Service. To provide catering services as required To provide back up to the emergency feeding service through use of school kitchens
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To provide premises for utilisation as Rest Centres To liaise with Adult / Children Services regarding the staffing of Rest Centres
4.11 Adult / Children Services To provide specialist staff experienced in dealing with all aspects of social welfare To co-ordinate all the agencies operating in the field of social welfare To provide premises for utilisation as Rest Centres To establish and manage Rest Centres to cater for the immediate needs of people made temporarily homeless To maintain Community Assistance Support Team members to provide emotional and practical support for people affected by critical incidents To provide an emergency feeding service via Meals on Wheels To arrange suitable alternative temporary accommodation for special needs cases made homeless as a result of the incident To provide temporary mid-term accommodation for people made homeless; and To assist the Police at ‘Friends and Relatives’ Centres. To provide advice, under relevant legislation to the homeless, on alternative accommodation
4.12 Policy and Performance Services To ensure public food and water supplies and hygiene at Rest Centres, Local Authority premises and temporary mortuary facilities To provide specialist advice on hazardous substances via in-house expertise and/or external agencies To provide advice on the safe collection, storage and disposal of contaminated material and to take part in the monitoring of contaminants To liaise with the Health Authority in any emergency involving danger to public health e.g. communicable diseases or radiological releases To liaise with the DEFRA on incidents relating to animal health e.g. Rabies and other notifiable diseases To provide advice, via Trading Standards, on issues such as insurance and the commissioning of repairs to avoid unqualified builders keen to exploit the vulnerability of affected property holders; and To provide advice on petroleum matters.
4.13 Highways and Environmental Services To arrange the provision of required manpower, plant and equipment from in- house or external contractors as necessary To provide transport via in-house vehicles and external transport operators as necessary To provide assistance in managing traffic movement, including road clearance, closures and traffic diversions To provide technical support in the assessment of dangerous structures, including temporary repairs, restoration and demolition To provide repair services to public buildings, residential homes, schools and leisure centres To advise public transport operators of any incident affecting their routes
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To provide security and cleaning support services as required at any Emergency Rest Centre or Council site; and To provide transport and establish liaison links with non-Council transport organisations, to co-ordinate their activities should they be required in response to the incident e.g. evacuation. To assist with various accommodation requirements via the Performance & Economy Service To liaise with industry regarding the impact of the incident on their operations;
4.14 Finance & Procurement To advise on all aspects of the financial implications of any incident including financial management To co-ordinate the provision of appropriate insurance for all Council employees and supporting voluntary agencies To co-ordinate, as required, the establishment of a disaster fund
OTHER AGENCIES
4.13 The roles and responsibilities of all other key agencies are incorporated into the Dyfed Powys Joint Emergency Services Major Incident Procedures document. Please refer to this document for further information on roles and responsibilities.
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SECTION 5 - KEY ACTIVITIES
ACCOMMODATION
5.1 AIM To enable the Local Authority, in conjunction with other Agencies, to effectively provide adequate accommodation and support, both short and long term, for those requiring accommodation as a result of an incident.
5.1.1 OBJECTIVES To ensure that suitable temporary accommodation can be provided with the minimum of delay To ensure that the necessary support and services are available to those requiring accommodation; and To enable the provision of more suitable longer term accommodation where necessary.
5.1.2 STATUTORY BASE All Local Authorities have a general ‘Duty of Care’ to the public. However, Councils have the responsibility for providing accommodation under Part 7 of the Housing Act 1996 (as amended 2002). This responsibility falls to the Adult Services of the Council.
ROLES AND RESPONSIBILITIES OF PARTICIPATING ORGANISATIONS
5.1.3 Adult / Children Services Adult Services has a wide range of specialist staff experienced with all aspects of social welfare who can provide support to evacuees. Adult Services also has the responsibility for the management of Rest Centres. Adult Services staff will co-ordinate the provision of temporary accommodation in the shorter term and assist with the provision of accommodation in the medium to long-term by working in partnership with other landlords.
5.1.4 Schools / Lifelong Learning and Culture Lifelong Learning and Culture can provide buildings in the form of Leisure and Community Centres for use as Rest Centres for temporary accommodation. The Leisure Centre Manager has an important role in supporting management of evacuees by providing staff resources and assisting with preparation or adaptation of the Centre. Selected comprehensive schools can be identified as potential Rest Centres where no suitable alternative exists.
5.1.5 Dyfed Powys Police The Police will provide a Liaison Officer(s) at Rest Centres if requested. The officer(s) will ensure that details of evacuees are correctly recorded for Casualty Enquiry Bureau purposes and address issues of public order / security.
5.1.6 British Red Cross The British Red Cross Society has trained teams and can offer help in respect of Administrative Functions, Welfare and First Aid at Rest Centres.
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5.1.7 St John St John has trained teams and can offer help in respect of Administrative Functions, Welfare and First Aid at Rest Centres
5.2 FEEDING
5.2.1 AIM To establish procedures for the provision of Emergency Feeding.
5.2.2 OBJECTIVES To set up emergency feeding services as required To acquire supplies and provisions To organise and utilise agencies To seek assistance on matters relating to food hygiene; and To identify the consumers.
5.2.3 STATUTORY BASE Local Authorities have a general duty of care to maintain public services and to assist local residents in distress. Therefore, the County Council has the responsibility for the provision of an emergency feeding service. This service will cater for members of the public unable to prepare hot food due to prolonged power outages or who have been displaced from their homes. It may also be a requirement to cater for rescue workers involved in the incident.
All catering working practices must adhere to the following legislation: Health & Safety at Work Act 1974 Food Act 1984 Food Hygiene (General Regulation) 1970 Food Safety Act 1990 Health Services & Public Health 1968
ROLES AND RESPONSIBILITIES OF PARTICIPATING ORGANISATIONS
5.2.4 Economy and Regeneration Property Services have access arrangements at the Authority’s disposal to use the Morrisons Crisis Purchasing Scheme and the Tesco Store at Cardigan on a 24hr basis.
5.2.5 Lifelong Learning and Culture Lifelong Learning and Culture are able to provide buildings in the form of Leisure Centres for use as Rest Centres. Some of these premises have their own facilities which can be supplemented from other sources. 5.2.6 Adult / Children Services Catering is provided at Residential Homes and Day Centres and is linked to the Community via Meals on Wheels. Adult Services Meals on Wheels would be able to supplement facilities at Rest Centres.
5.2.7 Schools
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Catering responsibilities lie with the Corporate Lead Officer for Schools who have the school meals services at his disposal The school meals service needs to be recognised as a valuable asset in relation to responding to Emergency Catering requirements
5.2.8 Dyfed Powys Police In any major emergency, the prime function of the Police would be to co- ordinate and control the overall emergency response.
5.2.9 The Salvation Army The Salvation Army can also be regarded as a resource to provide personnel to assist with Emergency Feeding.
5.3. COMMUNITY ASSISTANCE SUPPORT TEAM
5.3.1 AIM To provide the initial support required by persons traumatically affected by a Major Incident.
5.3.2 OBJECTIVES To enable the deployment of the Community Assistance Support Team (CAST) to provide practical and emotional requirements for people affected by a Major Incident To enable Community Assistance Support Team (CAST) members to work in partnership with Police Family Liaison Officers To enable the integration of care services within the County To provide for the referral of persons to the medical services as necessary; and To provide an outreach service for persons affected by the event.
5.3.3 STATUTORY BASE – DUTY OF CARE There does not appear to be a specific Statutory Base for the provision of this service. However, there are two areas where a base, or certainly a duty of care, can be identified: In regard to employees, employers have a duty as far as is reasonably practicable to ensure their Health, Safety and Welfare under Health and Safety legislation. There is a general duty placed upon Social Care Services and Health Authorities / Hospital Trusts to care for the Mental Health of the community.
ROLES AND RESPONSIBILITIES OF PARTICIPATING ORGANISATIONS
5.3.4 Chief Executive The Chief Executive is responsible for the overall co-ordination of the personnel and resources of the County Council in respect of any emergency.
5.3.5 Emergency Planning Duty Officer / County Emergency Planning Officer The EPDO / County EPO have responsibility for deployment of the trained CAST members using a Dyfed Powys Local Resilience Forum protocol.
5.3.6 People and Organisation
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The Council employs a Health and Safety Co-ordinator, based in Canolfan Rheidol, who will carry out Risk Assessments at the Councils Rest Centre buildings.
5.3.7 Adult Services Adult Services is recognised as the Lead Agency for the provision of a Care and Counselling Service and will therefore provide the following facilities: o A 24 hour response for emergencies o Teams of trained persons who can assess the needs of the victims and provide support o A ready to hand administrative system capable of registering and monitoring this new group of clients o A person to liaise with voluntary bodies who can offer assistance o A planned set of intervention arrangements to give care for up to 2 years after the event o A liaison officer to co-ordinate activities with the Health Services and other agencies o Methods advising clients how to contact the counselling service; and o An officer to liaise with the coroners’ officer regarding the arrangements for families of the deceased.
5.3.8 Schools Schools has the responsibility for the education of children and employs Educational Psychologists, who advise traumatised or disruptive pupils. A Major Incident may involve the children themselves, their close family or friends, or could be witnessed by the children. An incident could involve the school and therefore could significantly affect the psychology of the children. Schools will then have to be sensitive to the children’s psychological as well as educational needs when they return to school and will need to provide the following functions: o To ensure School Psychological Service are aware of the incident and can respond accordingly o To liaise with Adult Services in regard to children who will need help o To liaise with the Health Service o To prepare for a sensitive return to school (if significant numbers are involved, this may mean arranging a special assembly or memorial service) o To allow / arrange for care on school premises whilst ensuring that parents are involved and informed; and o To provide a suitable response to incidents involving schools trips outside the County.
5.3.9 Dyfed Powys Police The Police have their own counselling service available to its staff via the Police Occupational Health Service (It is hoped that the Police team can be made available to assist the public if they are not fully committed within their own organisation).
5.3.10 Mid and West Wales Fire and Rescue Service The Fire and Rescue Service have their own staff counselling service available via the Fire Service Occupational Health Department.
5.3.11 Maritime and Coastguard Agency
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The MCA has its own counselling service provision which is available through HR and Occupational Health Services. In addition, various operational officers have received traumatic incidents training to recognise and aid any potential trauma management and can provide staff with an initial diffusing session.
5.3.12 Health Service (Ambulance NHS Trust – Hospital Trusts) The National Health Service has many professionally qualified counsellors together with Psychologists and Psychiatrists who can be utilised to assist the staff. Some staff, however, may present for care to the Care Team. Close liaison will be affected with the appropriate NHS Occupational Health Unit. Any members of the public who are deemed to required specialist help will be referred to the Mental Health Service.
5.3.13 Voluntary Agencies There are many voluntary organisations which operate within the County that have staff and volunteers who are trained counsellors. Whilst they will work under the umbrella of Adult Services, they are trained and will adhere to their own ethics and declared levels of competency.
5.3.14 General Practitioners Some “victims” will report to their own G.P with minor ailments. G.P’s must be made aware of the incident response by the Local Health Board and will be asked, whilst maintaining patient confidentiality, to co-ordinate the approach to these patients with the Care Response Team.
5.4 INFORMATION / MEDIA
5.4.1 AIM To work closely with all agencies involved to ensure that the public are fully aware of the incident, and any danger to their health, families or homes. As much guidance and advice as possible will be given in a format that is clear, understandable and precise.
5.4.2 OBJECTIVES To provide information and guidance to the public before, during and after an emergency To warn the public of any actual or potential danger to themselves, their families or property To keep the media informed at all times; and To inform the public of arrangements for returning to normality post incident.
5.4.3 STATUTORY BASE All Local Authorities have a general duty of care to the public in emergency situations. Local Authorities now have a responsibility for Warning and Informing the public under the Civil Contingencies Act 2004. In addition, the Public Information for Radiation Emergencies Regulations 1992 (P.I.R.E.R) places a duty on the County Council to prepare and keep up to date arrangements to supply information and advice on the facts of the emergency.
ROLES AND RESPONSIBILITIES OF PARTICIPATING ORGANISATIONS
Ideally, no statement concerning the incident should be made to the press without prior agreement of the Strategic Co-ordinating Group (Gold). The Media Officer from
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each of the agencies will consult closely, and ensure a co-ordinated approach is made to the media. All agencies recognise the need to share all press releases. It is accepted that each agency may make individual statements in regard to their service response to incidents.
5.4.4 Chief Executive The Chief Executive is responsible for the overall co-ordination of the personnel and resources of the County Council in respect of any Major Incident.
5.4.5 Democratic Services The Communications Manager will assist in the co-ordination of all support services necessary for the provision of information during an emergency. The Communications Manager will advise the Chief Executive on all Public Relations matters regarding the emergency. The Communications Manager will be the media liaison contact, issue press releases and arrange media interviews as required. That officer will also respond to journalists’ enquiries in relation to the County Council’s involvement, responsibilities and role and, in conjunction with the Police, will provide a designated Media Liaison Officer to attend the Medical Liaison Point and establish a Media Centre as necessary.
5.4.6 Customer Contact The Council’s web site via the Internet can provide a rapid means of disseminating information to the public. It is essential that the information given is timely, accurate and regularly updated. The Library Service, traditionally, is regarded as a valuable community resource as well as being an established centre for the collation, organisation and dissemination of information. In an emergency the Library Service could be used as an outlet to provide information, guidance and community support. Library premises and mobile libraries are recognised as an excellent method of distributing information during all stages of an emergency.
5.4.7 Emergency Services
Incident Officers must jointly decide the areas to which the media WILL NOT have access to. These may include: Inner Cordon Casualty Clearing Station Survivor Reception Centre / Rest Centre / Friends and Relatives Temporary mortuary
Every effort will be made to allow eventual access to all areas; however, the following criteria must be taken into account: Operational efficiency must not be impaired Preservation of the scene to facilitate criminal investigation must be maintained The need for privacy of casualties and relatives must be respected Access to certain areas may need to be supervised; and The area must be safe for media personnel e.g. chemical, radiation incidents.
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5.4.8 Dyfed Powys Police In any major emergency the main function of the Police would be to control and co-ordinate the overall response to the emergency with assistance and support from other agencies as necessary. The Police will establish a media briefing point in close proximity to the main area of operations as a holding area for accredited media personnel to receive initial briefings. Police will be responsible for co-ordinating facilities available to the media and the opportunity for press conferences. The Police or other appropriate Emergency Service will issue an initial “holding” statement until the Media Co-ordination Group has been set up at an appropriate Media Briefing Centre.
5.4.9 Wales Ambulance Service In a major emergency, Wales Ambulance Service will liaise with the Police before issuing statements through a nominated spokesperson.
5.4.10 Mid and West Wales Fire and Rescue Service In a major emergency the Mid and West Wales Fire and Rescue Service will liaise with the Police before issuing statements through a nominated spokesperson.
5.5 Highways and Environmental Services
5.5.1 AIM To provide an integrated response of Local Authority Technical services with all outside organisations in responding to an emergency situation.
5.5.2 OBJECTIVES To seek to maintain the infrastructure of all essential public utilities and services within the relevant area of responsibility To provide a comprehensive practical support to the Emergency Services in their operations To minimise the impact of physical damage to property and the environment To provide immediate practical support in carrying out emergency repairs and clearance To assist with the restoration and recovery of the site; and To assist with the co-ordination of a multi-agency approach to a major emergency.
5.5.3 STATUTORY BASE The Highways Act 1980 and other acts set out the duties and powers of the Highways Authority.
ROLES AND RESPONSIBILITIES OF PARTICIPATING ORGANISATIONS
5.5.4 Highways and Environmental Services Highways and Environmental Services has a considerable resource of expertise and equipment related to technical, buildings works and engineering services. These resources can be made available in the event of a disaster
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requiring a “Works” response. These resources can also be supplemented by the Authorities contractual arrangements with private companies.
5.5.5 Dyfed Powys Police The Police Silver Commander will co-ordinate the overall activities of agencies and works at the scene in conjunction with the other Emergency Services. Police will arrange admittance to the site and nominate routes, ensuring they are kept clear and suitably sign posted.
5.5.6 Mid and West Wales Fire and Rescue Service The Fire and Rescue Service, in addition to its statutory responsibilities for dealing with fire, effecting rescues and rendering humanitarian services, will provide and operate specialist equipment from within their own resources. It can provide manpower quickly and transport them to the scene.
5.5.7 Wales and West Utilities The primary function of Wales and West Utilities in a disaster situation will be to maintain a safe gas supply infrastructure, including making safe any damaged apparatus. To assist in this, a sophisticated monitoring system, based in Gloucester (known as System Control) keeps the entire transmission and distribution networks under constant surveillance. However, System Control has no positive means of identifying that a disaster has taken place unless gas supplies have been affected. Therefore, they must be kept informed of the situation in order to be given enough time to take any necessary preventative measures. When required, the considerable resources of the gas industry will be made available in a disaster situation, to assist the Emergency Services in any way it can.
5.5.8 Western Powys Distribution / SP Power Systems The industry has at its disposal specialist personnel and equipment that could be mobilised to assist in emergency situations.
5.5.9 Dwr Cymru (Welsh Water) Apart from the statutory duty to maintain an adequate water supply, the company will be able to provide assistance of a valuable nature in disaster situations when and where commitments allow. In addition to its labour force, the company has vehicles, plant, equipment and communications facilities which it may be possible to make available to Local Authorities in the event of a major disaster.
5.6 FINANCE
5.6.1 INTRODUCTION Whenever a Local Authority responds to an emergency, it will always endeavour to do so as effectively as possible, utilising the available resources. In doing so it is likely that members and officers will be confronted with situations that fall outside those of their normal routine activities. Consequently, there could be instances whereby the financial implications of responding to emergencies are not immediately apparent.
These arrangements will, therefore, seek to secure clear procedures for the provision of financial support to the Officers when responding to an emergency. The
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procedures will be capable of use at any stage of an emergency and will be suitable for all incidents regardless of magnitude.
In order to facilitate a comprehensive set of financial support arrangements, this plan will also establish the extent of insurance and its significance to the Authority during emergencies.
5.6.2 AIM To secure clear arrangements for the acquisition, expenditure and monitoring of finance during every phase of an emergency situation.
5.6.3 OBJECTIVES To establish policy guidelines for Local Authority members and officers when authorising expenditure for emergency purposes To identify the methods by which finance may be obtained for emergency situations; and To establish clear arrangements for recording and monitoring finance expended when responding to emergencies.
5.6.4 POLICY STATEMENT Ceredigion County Council has defined a model policy statement which recognises the need to respond to emergencies, the requirements to give authority to incur expenditure, and the desirability of elected member involvement at an appropriate stage. This “model” statement is given below.
Ceredigion County Council’s prime consideration in relation to a Major Incident will be a swift, appropriate response.
The Chief Executive and/or nominated deputy, in consultation with the Corporate Lead Officer, Finance and Procurement, will have the necessary authority to incur such expenditure as may be required to make an immediate response to the emergency, provided such expenditure is lawful and not contrary to the existing policies of Ceredigion County Council.
In the case of Major Incidents, steps should be put in hand to inform and consult the appropriate members with immediate effect where required under the procedures of the Authority. As soon as practicable after a Major Incident has been declared, a meeting of the Cabinet shall be convened and an operational and financial policy in respect of the emergency should be determined.
Ceredigion County Council will make adequate resources available to ensure that appropriate arrangements are in place to validate the effectiveness of its emergency procedures.
ROLES AND RESPONSIBILITIES
5.6.5 The following roles and responsibilities will be undertaken by the Corporate Director and Corporate Lead Officer, Finance and Procurement. Issue specific financial codes which will be used by individual departments to record their expenditure when responding to an emergency. Detailed practical arrangements will be introduced, but it must be stressed that it is vital that expenditure is properly and fully recorded and reconciled periodically. Appendix B to this plan provides a draft memo to issue at the time of an incident to all service heads. This is especially important where outside
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assistance may be required (e.g. the Emergency Financial Assistance Scheme) where records will be required to support any application made. Advise Elected Members and officers on their level of authority to incur expenditure when responding to an emergency. Advise Elected Members and officers as to the sources of finance available to local authorities when responding to an emergency which could include any of the following: o Service budgets o Corporate funds o Litigation i.e. Court action against the person or organisations who is deemed to have caused the emergency. o “Local Authority Financial Assistance” Scheme funds i.e. Finance made available via the Welsh Government. o Other lesser sources as appropriate – It must be stressed, however, that in most instances departments will eventually have to absorb their share of costs as the overall budget for the year will have to be absorbed. Advise, if appropriate, on the creation of a Disaster Appeal Scheme to assist the victims of the disaster. In order to maximise the benefit of such a scheme, it should be established within 48 hours from the commencement of the emergency. Pending the development of a specific local scheme, the Council will utilise the British Red Cross Society Disaster Appeal Scheme (United Kingdom) 4th Edition. Consider the possibility of applying for aid from European Community funds to assist the victims of the disaster. Provide information to officers and members as to the full extent of all matters relating to insurance cover which include the following: o Public Liability o Insurance of Volunteers o Employer Liability o Property Insurance o Motor Insurance Provide financial information to individual departments as to the extent of their expenditure after responding to an emergency.
5.7 LEGAL AND ADMINISTRATIVE SUPPORT
5.7.1 INTRODUCTION Whenever a Local Authority responds to an emergency, it will always endeavour to do so as effectively as possible utilising the available resources. In doing so, it is likely that members and officers will be confronted with situations that fall outside those of their normal routine activities. Consequently there could be instances whereby the legal implications of responding to emergencies are not immediately apparent.
These arrangements will therefore seek to secure clear procedures of legal and administrative support to the Authority when responding to an emergency. The procedures will be capable of use at any stage of an emergency and will be suitable for all incidents, regardless of magnitude.
In order to facilitate a comprehensive set of legal and administrative support arrangements, this plan will also establish the parameters for incident logging and debriefing.
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5.7.2 AIM To establish clear arrangements which ensure that, during an emergency situation, the legal consequences and implications for the Authority are fully provided for.
5.7.3 OBJECTIVES To ensure that the Authority complies with its legal obligations with regard to emergency situations To ensure that the Authority responds to emergencies with a full understanding of its powers To ensure that appropriate legal advice is available when required To ensure the proper recording and collation of information in relation to emergency situations which could be required by any of the following: o External enforcement authority e.g. Health & Safety Executive o Judicial or internal inquiry o Police or Fire Service o Civil Court compensation claim, either by or against the Council To establish the parameters of convening and conducting debriefing sessions; and To ensure proper representation at any of the following: o Criminal Court o Civil Court o Internal Enquiry o Coroners Interest o Public Inquiry
ROLES AND RESPONSIBILITIES
5.7.4 The following roles and responsibilities will be the responsibility of the Legal and Governance Services. These roles and responsibilities are intended to underpin all other emergency preparedness arrangements which have been developed as elements of an integrated emergency management response.
5.7.5 Legal and Governance Services will provide or arrange to provide advice with respect to the following: 1. The extent of legal obligations when responding to emergencies 2. The extent of authority when responding to emergencies 3. On the statements officers and Members make to inquiries or investigations 4. On statements officers and Members intend to make to the media.
Assist, if required, in the convening, conducting and chairing of inter- departmental, inter-authority or inter-agency debriefings Convene special meetings of Elected Members in order to attain any necessary authority Assist, if required, in the proper collation of incident logs in preparation for investigations, public inquiries or any Court proceedings; and Arrange for appropriate legal representation at all formal proceedings including the following: o Criminal Court o Civil Court o Internal Inquiries o Coroner’s Inquest
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o Public Inquiries
5.7.6 Whilst the Corporate Lead Officer, Legal and Governance Services, and the Corporate Lead Officer, Customer Contact, will have the most significant roles to play within these arrangements, individual Services will be expected to undertake the following responsibilities: Ensure that information relating to the emergency is properly logged. o Officers must be aware that the decisions they make during an incident will be used to evaluate the Authority’s response to the emergency. It is possible that their actions will come under close scrutiny by subsequent inquiries or investigations. Consequently, officers should never rely on memory alone and all matters relating to an emergency must be recorded on either a message form, or for the more significant decisions, on a logging form. See Appendix C for an example of the Dyfed Powys LRF Incident Log Sheet, which will be used. A guidance document is available from the Community Safety and Civil Contingencies Unit.
o It is recognised that in the majority of instances message forms will be used as opposed to incident logs. The distinction between the two is not always clear, but it is recommended that message forms are used for receiving and passing messages only. These messages could be requests for assistance, resources or information. Similarly, a message form should be used when such requests are acknowledged or when requests are initiated.
o Incident logs differ in the sense that they are a chronological list of the decisions made when responding to an incident. They should be completed whenever decisions on a course of action are taken.
o Incident log entries can be entered retrospectively if it is necessary to summarise the contents of individual message forms. Such entries must be made within two working days from the Emergency Services standing down from an incident.
o The incident logs will then provide a chronological record of a department’s response to an emergency. In order to emphasise the importance of logging, each Corporate Lead Officer will nominate an officer who will be responsible for maintaining the integrity of the logs and message forms, and also for their proper collation. This officer should be of an appropriate seniority. Each Corporate Lead Officer will be responsible for convening and chairing a Corporate Area debriefing session with 5 working days of a major disaster, and may wish to employ the services of the Civil Contingencies Officer. In order to ensure an effective corporate response to an emergency, the Corporate Lead Officer, Democratic Services will be responsible for the Central Collation of all logs and message forms.
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SECTION 6 - EVACUATION
INFORMATION
6.1 Evacuations are carried out to protect the public from a dangerous event, or from a potentially dangerous event. In considering or executing evacuation, care must be taken not to put people at greater risk by bringing them outdoors when they might be more effectively protected by shelter indoors. This is particularly important in the case of the release of toxic substances, or where a secondary terrorist device may be present. The physical difficulties of large scale evacuation should not be underestimated.
6.2 Each Service will have its own particular area(s) of responsibility and priorities in the event of an evacuation, however, it is essential that a joint decision be taken and that all parties are aware of needs and responsibilities.
6.3 In considering whether to evacuate, the Police Incident Officer is likely to need to consult with a number of other parties. The nature of the risk and the time scales available are likely to influence the form of such consultations. The Emergency Planning Duty Officer must be informed of any possible evacuation.
THE DECISION TO EVACUATE
6.4 The decision to evacuate will be undertaken by the Police Incident Officer in consultation with the senior Fire and Rescue Service Incident Commander and any other appropriate specialists.
6.5 In all potential evacuations it is essential that the Police Incident Officer liaises with Force Headquarters Operations Room and/or Major Incident Control Room (Gold) for assistance.
6.6 Organisations most likely to be consulted include: The Fire and Rescue Service Incident Commander: on risks associated with fire, building hazards, contamination and other hazards. The Incident Commander would be clearly identifiable in a labelled tabard. Any incident critical decisions must be discussed with this officer. The Senior Ambulance Officer / Adult Services: on problems associated with the movement of people who are frail, disabled or infirm. The Public Analyst and Environmental Health Officer: on the perceived dangers to the public, particularly in relation to gas clouds, fumes, etc. The Regional Weather Centre: for information under the Chemet Scheme. Local Authority Engineers: in regard to land slips or structural safety. Natural Resources Wales: in regard to flooding or potential flooding. Adult / Children Services: on welfare aspects.
6.7 Once the decision has been taken to evacuate, consideration must be taken to informing the relevant organisations: Police Fire and Rescue Service Ambulance Service Coastguard (when appropriate) Hospital Trusts – Health Authority (via Ambulance)
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Ceredigion County Council – Emergency Planning Duty Officer / Civil Contingencies Officer The Affected Public Public Utilities (as appropriate) British Telecom Welsh Water / Dwr Cymru British Gas Transco (Wales) Western Power Distribution / SP Power Systems Railtrack (as appropriate)
6.8 The earlier the warning is given the better, as this allows time for staff to be notified and prepared.
INFORMING THE PUBLIC
6.9 Evacuation can only be advised and not ordered or enforced. However, when dealing with a suspected or confirmed terrorist incident, the Police have the power to instruct any person to leave a cordoned area. This includes any person who is on premises within that area (The Prevention of Terrorism (Additional Powers) Act 1996, Schedule 6A, Section 6 refers.)
6.10 The method(s) used to inform the public will depend on the circumstances and any or all of the following may be used, provided the result is the successful evacuation of the area to the degree necessary within the time scale: Personal call by Police Officer, or other official Loud hailers Public Address System Local TV / Radio broadcast Telephone call etc
6.11 The Corporate Communications Manager would be available to contact press / media with any necessary announcements.
6.12 As far as is practicable, steps should be taken to ensure the security of property left empty after evacuation. Furthermore, attention will need to be paid to the safety and well-being of Emergency Service and Local Authority personnel, who might be exposed to risk whilst assisting in the evacuation or securing premises. As buildings are vacated they should be marked and a record made of those not evacuated.
REST CENTRES
6.13 Plans have been prepared by Ceredigion County Council, which identify premises suitable for use as Rest Centres (see Section 7 – Emergency Rest Centres). Rest Centres will be staffed by County Council personnel, Voluntary Agencies and, when available, Police Officers.
RE-OCCUPATION
6.14 The decision to allow persons to return to their homes must be made by the Police Incident Officer in liaison with relevant County Council personnel and other organisations involved, including the utilities. It may be appropriate to arrange follow- up visits to each home to assess the after-effects of the evacuation, which may include visits by Adult / Children Services.
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SECTION 7 - EMERGENCY REST CENTRES
INFORMATION
7.1 It is a statutory requirement of the Civil Contingencies Act 2004 that each Local Authority has a system of pre-designated Rest Centres and Survivor Reception Centres. Ceredigion County Council has 6 Primary Emergency Rest Centres (ERCs) located throughout the County. These ERCs fulfil the role of both Rest Centre and Survivor Reception Centre.
Rest Centre - Premises used for temporary accommodation of evacuees from an incident. Survivor Rest Centre – Secure area where survivors not requiring acute hospital treatment can be taken for short term shelter, first aid, interview and documentation.
7.2 The Community Safety & Civil Contingencies Unit holds 24 hour contact details for all ERCs. Each centre will provide basic accommodation for displaced persons.
ACTIVATION
7.3 This service may be activated on a 24/7 basis throughout the year. During office hours all requests to open an ERC will be authorised by the Civil Contingencies Officer, Community Safety & Civil Contingencies Unit in conjunction with Adult Services. Out of office hours, requests will be authorised by the Emergency Planning Duty Officer, also in conjunction with Adult Services.
NB: Contact details for the Community Safety & Civil Contingencies Unit and Emergency Planning Duty Officer are listed in the Emergency Contacts Directory.
7.4 The Community Safety & Civil Contingencies Unit maintains an ERC Procedures document, which details the opening protocols, and is provided to all Rest Centre Managers.
REST CENTRE BOXES
7.5 Rest Centre boxes contain equipment required to open a Rest Centre and register evacuees. Each box contains enough forms and wristbands to register up to 250 people.
REGISTRATION OF EVACUEES
7.6 The Police will decide whether the formal registration of evacuees / survivors will be required. This decision will depend mainly on whether the Police will open / establish a Casualty Bureau. The Rest Centre Manager will be informed of this decision by the Police / Civil Contingencies Officer.
7.7 Registration of evacuees / survivors at the Rest Centre is undertaken by Ceredigion County Council Officers using the self-registration form.
EMERGENCY FEEDING PROCEDURE AND SECURITY
7.8 The provision of Emergency Feeding and catering arrangements will be provided by Schools Services. This will be organised initially by the Civil Contingencies Officer, who holds 24 Hr contact details for the Catering Group. Subsequent requests may be made by the Rest Centre Manager.
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It should be noted that the above provision is in place to cover localised incidents and events and not major / national emergencies when national / UK guidance will be provided.
The provision of security and cleaning services still lies with Highways and Environmental Services
An Emergency Feeding and Security in Rest Centres Procedures document is held by the Community Safety & Civil Contingencies Unit.
VOLUNTARY SECTOR ASSISTANCE
7.10 The voluntary sector has an important role to play in supporting statutory services in response to some emergencies. Co-operation between the Local Authority and voluntary organisations has been established at local level by setting up a voluntary sector LRF co-ordinating group. Ceredigion County Council could call upon the following organisations to provide support at ERCs: British Red Cross – Who can provide: Basic First Aid, Therapeutic care and massage, Assistance with the ERC Registration Process, Welfare Assistance (as agreed with / by the Rest Centre Manager) St John – Who can provide: First Aid, Ambulances, cars and support Salvation Army – Who can provide: Chaplaining services and support Raynet – Who can provide: Radio Amateur Networks and communication links RNLI – Who can provide: Lifeboats and Flood Rescue Teams
7.11 Initial activation / tasking of the above will be by the Civil Contingencies Officer. Subsequent tasking will be by the Rest Centre Manager.
FAITH COMMUNITY SUPPORT
7.12 Religious support from the Faith Community will be arranged via the Salvation Army (in conjunction with Care, Protection & Lifestyle).
OVERNIGHT / SLEEPING ARRANGEMENTS
7.13 As the Emergency Rest Centres are only suitable for temporary evacuation, no sleeping arrangements are available, but if required, each Council Residential Home holds 150 Space Blankets and 20 sleeping bags.
EDUCATION & TRAINING
7.14 Ceredigion County Council Community Safety & Civil Contingencies Unit conducts regular Emergency Rest Centre training to which all necessary officers are invited.
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SECTION 8 - EMERGENCY CONTROL CENTRE
LOCATION
8.1 The Ceredigion County Council Emergency Control Centre is based at the Council Chamber, Penmorfa, Aberaeron.
ACCESS
8.2 The Emergency Control Centre at Penmorfa will be opened on the instructions of the Chief Executive. The Emergency Planning Duty Officer will contact the County Civil Contingencies Officer who will advise caretaking staff that the centre is to be opened and arrange for its staffing.
STAFFING
8.3 The staffing of the centre will initially consist of senior representatives from the relevant Services together with their administrative support. The level of staffing will be reviewed at the initial and subsequent meetings of the Emergency Leadership Team. Levels of staffing from individual Services will vary according to the nature and stage of any incident.
STORAGE OF EQUIPMENT
8.4 Equipment for the Emergency Control Centre is housed in a steel cabinet in the storeroom to the rear of the Communications Teams Office. Contents include: VHF / MF Transceiver Emergency Contacts Directories BT Directories Wall Maps Dry Wipe Board Dry Wipe Markers / Erasers Telephones Administration Support Box Log sheets Message pads Copy of the Major Incident Plan
8.5 Also, stored in the Penmorfa loft space are: 2 emergency tents Foil blankets Disposable clothing Toiletry packs
8.6 An Emergency Control Centre Activation Plan has been produced by the Community Safety and Civil Contingencies Unit and distributed to relevant staff.
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SECTION 9 - TEMPORARY MORTUARY
9.1 In support of the Coroner, Ceredigion County Council has made provision for a temporary mortuary facility. Suitability of the site has been agreed in consultation with HM Coroner, Home Office Pathologist, Dyfed Powys Police and the site owners.
LOCATION
9.2 Suitable premises for adaptation to Temporary Mortuary use are located at QinetiQ Aberporth.
COUNTY COUNCIL ROLE
9.3 In its supporting role to the Coroner, Ceredigion County Council is a leading player in the preparation for establishing and supporting the Temporary Mortuary. The primary operational functions are matters for the Police and Pathologist, in their respective supporting roles to the Coroner, with Environmental Health providing a minor role. The primary roles for the Council will relate to the response to friends and relatives of the bereaved, which will be conducted in conjunction with the Police.
DYFED POWYS MASS FATALITIES PLAN
9.4 A separate detailed plan has been produced for temporary mortuaries covering the Dyfed Powys area.
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SECTION 10 - DEBRIEFS
ROLES AND RESPONSIBILITIES
10.1 It is essential that all staff involved in an incident be debriefed if lessons are to be learnt and improvements to future response achieved. These should be conducted at all levels, from front line staff up to senior management.
10.2 Internally the Council will conduct its own debriefs using local line management. On an inter-agency level in most circumstances, the responsibility for co-ordinating a multi-agency debrief will lie with the Police, although this can be requested by the Council if it is considered appropriate.
10.3 Similarly, Service and corporate debriefings can also be convened following any scale of emergency.
ORGANISATION
10.4 In order to maximise the benefits, a number of points should be observed whereby such meetings should be: Convened at the appropriate time: Local Team debriefings - In the first “shift” immediately following the stand down of the incident
Service debriefings - not later than 5 working days after the Emergency Services have stood down
Corporate debriefings - not later than 7 working days after the Emergency Services have stood down
Inter-Agency debriefings - not later than 14 working days after the Emergency Services have stood down (can be extended to 28 working days if necessary for a Major Incident).
Held at an appropriate venue The venue must be able to accommodate all those who are likely to attend. It must also be able to provide for any special needs such as the use of audio-visual equipment which could be used as an aid to the debriefing.
Chaired by an appropriate authority In the event of a major disaster, it has been agreed that in most circumstances, Dyfed Powys Police will convene and chair inter-agency debriefings. The Council may convene an inter-agency debrief if it considers it to be necessary, irrespective of the scale of the incident. The Council should then chair the meeting and make available a venue for the session, together with the appropriate support services such as minute taking. The Chief Executive will also either personally conduct, or appoint an officer who will convene and chair a corporate debriefing session within 7 working days of the Emergency Services standing down from a Major Incident.
Service debriefs will be chaired by the respective Corporate Lead Officer or their nominated representative. Local team debriefs should be conducted by local line management.
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Chaired by an appropriate person Multi-agency debriefings chaired by the Police will be undertaken by an officer of rank not less than that of a Superintendent in the event of a Major Incident, or that of a Senior Officer for Local Authority debriefings. Such a person should be skilled and experienced in conducting meetings and must be able to call on the support of officers from their legal departments to advise as appropriate. The chairperson should also ensure that a record of proceedings is taken by a suitably experienced officer.
Constructive The aim of every debriefing session should be to evaluate what has occurred and, if necessary, introduce positive changes which will ensure a continued effective response to emergencies in the future. It is acknowledged that emergency preparedness is a dynamic and ongoing process and debriefings are an essential element of effective planning. It should not be seen as an opportunity to apportion blame or to single out a “scapegoat”, which can only be counter-productive.
A forum to exchange information It may not always be clear how different authorities and agencies responded to an emergency. Debriefings can provide an excellent opportunity for all concerned to gain an appreciation of the difficulties and responses of each organisation. Such enhanced understanding should foster a more informed response for future emergencies.
Conclusions / recommendations It will be for those officers attending debriefings to decide whether they should produce minutes or a report following debriefing. They will also determine who should receive copies of such documents.
Inquiries / investigations It should always be borne in mind that the discussions, minutes or reports of debriefings could be used in inquiries or investigations by or against Local Authorities. Representatives from Legal & Governance Services, Human Resources and Democratic Services will be able to advise on this issue during the debriefing.
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SECTION 11 – TRAINING AND EXERCISE
11.1 The Council recognises the importance of training and exercising to maintain and improve its emergency response capability. This will be undertaken internally at Service and corporate levels and also with its partners in a multi-agency environment.
11.2 Training in respect of the corporate and Service plans will be co-ordinated by the Civil Contingencies Officer. It is essential that all training proposals are discussed to ensure maximum corporate benefit and the co-ordination of involvement of any external partner agencies. The Civil Contingencies Officer will discuss training needs and opportunities in consultation with all departments, and develop an annual training programme in order to enhance the quality of service in emergency response.
11.3 The exercise programme being developed is designed to actively involve participants working in syndicates based on Local Authority boundaries. A primary benefit of this approach is to develop working relationships and an understanding of roles based upon geographical areas.
11.4 A balance will need to be struck between perceived local training priorities within Ceredigion and any training programmes developed by the Local Resilience Forum.
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APPENDICES
Page 62 of 66 Classification NOT PROTCTIVELY MARKED Ceredigion County Council Major Incident Plan Appendix A
LIST OF EMERGENCY PLANS (Dyfed Powys LRF & Ceredigion County Council)
Dyfed Powys LRF Plans
Joint Major Incident Procedures Manual and Summary Strategic Coordination Centre Activation Procedure Protocol for Declaring a Major Incident Mass Fatalities Plan Chemical, Biological, Radiological and Nuclear Plan Warning and Informing Plan Guidance for Recovery from a Major Incident Resilient Telecommunications Plan Humanitarian Assistance Guidelines Evacuation and Shelter Arrangements Pandemic Influenza Plan Severe Weather Arrangements Off-Site Plan for Reservoir Arrangements Hazardous Substances and Minor Chemical Plan Fuel Plan and Fuel Sharing Protocol Off-Site COMAH Plans
Ceredigion County Council Plans
Major Incident Plan Business Continuity Plan Service Emergency Plans Multi-Agency Flood Plan *Other procedures documents are available
Once updated and approved, all of these plans will be available on CARDIPOINT and Resilience Direct.
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DRAFT MEMORANDUM
TO: All Corporate Lead Officer
FROM: Corporate Lead Officer: Finance and Procurement
EMERGENCY ACTION – ACCOUNTANCY ARRANGEMENTS MEMORANDUM
In the event of an emergency situation occurring, it is essential that all personnel are aware of arrangements in hand to deal with such events.
Detailed emergency plans have been prepared to cover the main requirements.
However, as expenditure is going to be incurred for which no specific finance has been provided, it is essential that all such expenditure is clearly recorded when it is committed (i.e. when orders are placed and/or accounts paid) so that possible sources of finance can be considered as soon as the extent of the situation is identified.
Below is an outline of the arrangements required, together with the officer(s) to contact for specific arrangements to be made for the particular emergency:
Officers to Contact: ......
Recording Arrangements:
o All expenditure needs to be recorded as it is committed whether it be staff time, use of man power, vehicles, buildings, purchase of materials, stores etc., hire of outside services. o Details of all staff used (with times) to be recorded on the appropriate logging records on a daily basis. o Other costs (including use of stores) payments for outside services etc., to be requisition on appropriate vouchers, certified by appropriate staff. o Cost codes to be set up initially and recorded on appropriate requisitions. Code or codes used to be agreed in advance with the Accountancy Section. o All requisitioned items to be recorded in the appropriate log record together with the cost code to be charged. o Invoices to be paid against the appropriate cost code and recorded on the logging record against the relevant requisition entry. o All internal requisitions (stores etc.,) to be clearly identified as being chargeable to the appropriate cost code.
Monitoring Arrangements
o At periods to be agreed, entries shown against the relevant cost code in the accounting records will be reconciled with the supervisory officer’s logging record to ensure all costs have been properly and fully identified. o At an agreed time after the emergency the relevant operational officer shall agree with the appropriate accountant a final statement of expenditure on the emergency action.
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I must stress the important of proper accounting in such circumstances as no advance funding is possible and subsequent funding may only be achieved by full and effective accounting arrangements.
I must also stress the need to be fully aware of the basic accounting requirements in advance of such an event and regular contact with the accountancy personnel and interim arrangements are an essential prerequisite to effective control.
Corporate Lead Officer: Finance and Procurement
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DYFED POWYS LRF INCIDENT LOG SHEET
Date Incident Meeting Loggist Decision Maker
Print: Role:
Sign: Print:
Sign:
Reviewed Time Decision Action Rationale Notes by (Sign)
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