London Local Resilience Forum (LLRF) London Local Authorities Panel (LLAP)

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Multi-Agency Shelter Framework (Interim Version)

Includes:

 Types of Shelter  Responsibility for Shelter provision  Shelter Operations  Appendices

QUICK REFERENCE GUIDE Shelter types and sizes Page 12 List of potential Emergency Evacuation Centre Page 27 locations Management structure for Shelters Page 13 Shelter Activation flowchart Pages 21 & 22 Communication and Co-Ordination flowchart Page 24

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VERSION CONTROL

Summary of Changes Issue Number Approved By & Date

Compiled by:

Paula Waxman

Chair - London Shelter Working Group

Emergency Planning - London Borough of Islington

Isla Hurley Brunt

Secretariat - London Fire Brigade Emergency Planning

All queries relating to this document should be directed to the Multi Agency Shelter Working Group via the above.

Approved by:

Date:

April 2012

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CONTENTS

VERSION CONTROL ...... 2 EXECUTIVE SUMMARY ...... 5 SCOPE OF DOCUMENT ...... 6 1. EQUALITIES ...... 7 2. LEGAL CONSIDERATIONS ...... 7 3. DATA PROTECTION ...... 9 4. FINANCE ...... 9 4.1. Belwin Scheme ...... 9 5. RISKS and PLANNING ASSUMPTIONS ...... 10 5.1. Risks ...... 10 5.2. General Planning Assumptions ...... 10 5.3. Olympic and Paralympic Planning Assumptions ...... 10 6. DEFINITIONS and PRINCIPLES ...... 12 6.1. Emergency Evacuation Centre (EEC) ...... 12 6.1.1. EEC Activation ...... 13 6.1.2. EEC Command, Control and Management ...... 13 6.1.3. EEC: Core Agency Roles and Responsibilities ...... 15 6.2. Short Term Shelter (STS) ...... 16 6.2.1. STS Activation ...... 16 6.2.2. STS Command, Control and Management ...... 17 6.2.3. STS: Core Agency Roles and Responsibilities ...... 18 6.3. (Emergency) Rest Centre (ERC) ...... 19 7. ALERT, ACTIVATION and COMMUNICATIONS ...... 20 7.1. Shelter Activation: Sudden Impact Incident ...... 21 7.2. Shelter Activation: Rising Tide Incident ...... 22 7.3. Shelter Venue Selection: Decision-Making Process ...... 23 7.4. Shelter Management: Command and Control ...... 24 7.5. Dynamic Risk Assessment ...... 24 7.6. Special Considerations ...... 24 Flooding ...... 24 Evacuation of Vulnerable persons ...... 24 7.7. Warning and Informing ...... 25

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8. OPERATIONAL CONSIDERATIONS ...... 26 8.1. Arrivals and Reception ...... 26 8.2. Registration and documentation ...... 26 8.3. Provision of information ...... 26 8.4. Medical Provision ...... 26 8.5. Practical Support ...... 26 8.6. Security and Safeguarding ...... 26 8.7. Catering and Feeding ...... 26 8.8. Animal Welfare ...... 26 8.9. Dormitory Provision ...... 26 8.10. Emotional and Spiritual Support ...... 26 8.11. Handover ...... 26 8.12. Staff Welfare and Safety ...... 26 8.13. Stand-down ...... 26 APPENDIX A: Suggested Games-time Shelter Venues ...... 27 APPENDIX B: Shelter Management Team Meeting Agenda (suggested topics) ...... 29 APPENDIX C: Food Provision in Shelters ...... 30 APPENDIX D: Key Consumables Checklist and Sourcing ...... 31 APPENDIX E: Information for London Local Authority Gold (LLAG) ...... 32 APPENDIX F: London Voluntary Sector Panel Capability ...... 33 APPENDIX G: All Agency Roles and Responsibilities ...... 34 APPENDIX H: Supplementary Documents ...... 36 APPENDIX I: Glossary ...... 37

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EXECUTIVE SUMMARY The purpose of this framework is to offer guidance to responders providing emergency Shelter to large numbers of displaced persons and, where appropriate, other living creatures. In this context, the term “Shelter” may take a range of forms dependent on the level of need. The underlying principle is that dormitory-level accommodation will not be provided for anyone but the most vulnerable, i.e. those unable to return to their place of residence as a direct result of the declared Emergency situation. Those who are able to make their own private arrangements with family or friends must be encouraged to do so. This will reduce the impact of short or long term displacement on the individual, and allows the resources of responding agencies to be allocated primarily to those most in need.

The framework has been developed in consultation with the Multi-Agency Shelter Working Group. In addition to providing guidance, it is intended to support decision-making and expectation management across all multi-agency partners and stakeholders. The content facilitates a flexible, scalable and co-ordinated approach to Shelter provision.

The challenges posed by the 2012 London Olympic and Paralympic Games direct Category 1 and Category 2 responders to consider the likely impact large numbers of additional persons might have on an emergency response that requires the provision of Shelter. Supplementary considerations include the needs of a temporary population which may include increased numbers of persons with disabilities, language barriers and a lack of familiarity with the Greater London area.

This document is not intended to be prescriptive, as every incident is different; rather, its aim is to capture the core principles of Shelter provision to enable key organisations to respond consistently and with a clear understanding of their roles and responsibilities. This interim, draft version is intended for use during the London 2012 Olympic and Paralympic Games. A full, pan-London version will be developed after the Games have concluded.

Membership of the Multi-Agency Group

London Local Authorities Sub-Regional Resilience Fora: London Resilience Team  Central MPS CO3 and MPS Traffic  North Central Voluntary Sector Panel  North East  South East Transport for London  South West Ministry of Defence  West Government Liaison Team (DCLG) London Fire Brigade Emergency Planning NHS London

On behalf of the Multi-Agency Group:

Paula Waxman

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SCOPE OF DOCUMENT

Please note that this document is not intended to supersede or replace Local Authority Borough-specific Emergency Rest Centre plans.

This document is an interim version of a planned full framework to be completed after the London 2012 Olympic and Paralympic Games. It is intended for use within the London Local Resilience Forum area only, and its primary purpose is to support Category 1 Responders and their non-Statutory partners, i.e. the Voluntary Sector.

The remit of this framework is limited to the provision of shelter to those without restrictions on their movement or the need for specialist care. Those seeking information on the emergency sheltering of people evacuated from large hospitals, hospices and prisons/other detention centres should contact those organisations directly for information on their emergency accommodation arrangements. Consideration has not been given to other closed communities, including the London Zoo and other enclosures hosting animals.

This document should be read in conjunction with the Evacuation and Shelter Guidance issued by the Cabinet Office: http://www.cabinetoffice.gov.uk/resource-library/evacuation- and-shelter-guidance

The term “Police” is used throughout and may refer to the Metropolitan Police Service (MPS) or the City of London Police (CoLP). Where the British Transport Police (BTP) are referenced, this will be specified.

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1. EQUALITIES When determining the roles and responsibilities of all agencies and staff involved in the provision of a shelter, due consideration was given to fairness and equality and diversity, regardless of disability, ethnic origin, race, gender, age religious belief, or sexual orientation.

Issues considered include;

 Access to the Shelter  Access to interpreting services for those whose first language is not English  Consideration of separate quiet area, child friendly areas, mother and baby areas and a prayer room where possible to cater for all ages, faiths and cultures.

2. LEGAL CONSIDERATIONS

Provision of Shelter

Although any incident leading to the requirement for Shelter provision is likely to require a multi-agency response, it is primarily Local Authorities which have a statutory duty to provide temporary shelter for people who have been temporarily evacuated from their homes because of an emergency. The Housing Act (1996) Part 7, and the Homeless Act (2002) delegate the statutory duty/responsibility to assist people who are homeless or likely to become homeless to the borough housing authority.

Local Authority duties in relation to homelessness are complex and dependent on a number of factors, including normal eligibility for housing. Certain categories of Foreign National are not eligible and the provision of support may be dependent on whether persons are “homeless” under the UK statutory definition. The statutory definition includes provision for those who have accommodation but cannot secure entry to it, or if circumstances are such that it is not reasonable for them to occupy it.

If a person is eligible and is homeless the Local Authority should consider whether he/she is a “priority need” as defined in the Housing Act (1996) Section 189. The definition of “priority need” includes those who are homeless or threatened with homelessness as a result of an emergency, and therefore this is relevant to the provision of shelter as the result of an incident. Local Authorities are required to establish whether any duty (and if so what duty) is owed to an applicant under the Housing Act (1996) Part 7. While those enquiries are being made, if the LA has reason to believe that an applicant may be homeless, eligible for assistance and have a priority need they will have a duty to provide interim accommodation. They may also make enquiries to establish if the applicant has a local connection with the district of another housing authority in England.

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A person has a local connection with the district of a housing authority if he or she has a connection with it due to:

 residence (of choice);  employment;  family associates;  other special circumstances.

Referrals to another Local Authority are discretionary and can only be made if the main housing duty is owed and at least one member of the applicant's household has a local connection with the other local authority. While these enquiries are ongoing the LA must accommodate the person until they are able to notify them of whether the conditions for referral of their case to another Local Authority are met.

In the context of emergency shelter provision it should be noted that, due to the time required to make the necessary enquiries and the number of individuals displaced, the emergency situation may have been resolved. In short, Local Authorities do not have a longer-term duty to house people without a local connection, but do have an initial duty to make enquiries and offer temporary accommodation to eligible, homeless people who had a priority need as a result of fire, flood or other disaster.

For further information on the status and eligibility of Foreign Nationals, please refer to the Department for Communities and Local Government (DCLG).

Other relevant legislation includes:

The Children and Educational Acts

Local Authorities and other responding agencies have duties arising from the Education Act (2002) and the Child Act (2004) to safeguard and promote the welfare of children.

Animal Protection

The Animal Welfare Act (2006) requires Local Authorities and other responding agencies to work to prevent suffering or distress to animals through our actions or our failure to act.

Employment Legislation

Health and Safety at work legislation, which is based on the twin concepts of risk assessment and reasonable practicality, requires employers and others to ensure, as far as reasonably practicable, a safe place of work and working practices. There is no expressed exemption for terrorist activity or emergencies in general.

Collecting and sharing personal data - please see Section 3 on Data Protection.

Volunteer Staff in Shelters

Staff provided by neighbouring London Boroughs will be covered by insurance policies as per standing Mutual Aid arrangements. Voluntary Sector responders from nationally- recognised Voluntary Sector organisations such as the St John’s Ambulance or British Red

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Cross will be covered by their corporate organisational insurance. If volunteers from smaller, locally-based groups seek to support Shelter work, enquiries should be made by the lead Local Authority as to the level of their personal or group insurance. Failure to demonstrate adequate insurance may restrict the activities in which smaller, locally-based voluntary groups can participate, due to liability issues.

3. DATA PROTECTION Consideration must always be given to the principles of the Data Protection Act 1998.

Confidentiality is of prime importance, and due care should always be taken when recording information. Transparency regarding the purpose of data collection is also vital.

Data collection may be requested from those who are displaced in order to assist in tracing other displaced persons, and to help assess their needs whilst present in a Shelter.

This information will be shared with other agencies if required.

4. FINANCE In the event of an exceptional emergency, Government departments may consider providing financial support to various aspects of the recovery effort.

The supporting guidance for funding arrangements can be found using the links below:

Department for Communities and Local Government (DCLG) - Support for Recovery from Exceptional Emergencies http://www.communities.gov.uk/documents/fire/pdf/1304416.pdf

4.1. Belwin Scheme

The Belwin Scheme exists to allow Local Authorities apply to recover all or part of the cost of responding to a major incident. http://www.communities.gov.uk/localgovernment/localgovernmentfinance/bellwinscheme/

Further arrangements to be confirmed.

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5. RISKS and PLANNING ASSUMPTIONS

5.1. Risks A range of risks (as outlined in the London Community Risk Register) could result in a scenario requiring mass shelter. The current reasonable worst case planning assumption for London is based on a major fluvial flooding incident (H21)1, giving the following impacts2:

Properties flooded (homes and businesses) 50,000 People flooded 110,000 People requiring assistance sheltering (up to 5 50,000 days) Displaced households requiring temporary 11,000 accommodation (up to 6 months) People requiring temporary accommodation (up 27,500 to 6 months) Households requiring assistance with long term 6,000 accommodation (min 12 months) People requiring assistance with long term 15,000 accommodation (min 12 months)

It is recognised that, whilst flooding would be significant and is a credible known risk for London, other unknown scenarios may lead to the emergency evacuation of large numbers of people and a subsequent need for the establishment of mass shelters.

5.2. General Planning Assumptions

Please see full Framework document (to be completed 2013).

5.3. Olympic and Paralympic Planning Assumptions

Olympic Village and Games Venues

The evacuation and subsequent sheltering of athletes and other members of the “Olympic Family” is complex and sensitive, and leads to a number of additional requirements for safety and security. The London Organising Committee for the Olympic Games (LOCOG) has vouched that London Local Authorities are not likely to be asked to provide specific or exclusive emergency shelter for those resident in the Athletes’ Village as this falls under the remit of the LOCOG Central Contingency plan.

Should an emergency evacuation occur within the “Last Mile”, i.e. the mile on approach to a Games venue, LOCOG staff and security will assist partner agencies by taking a lead in co- ordination of the evacuation response.

1 H21 – Major fluvial flooding affecting parts of more than two UK regions – also urban areas 2 Figures based on those derived for 2009 National Planning Assumptions and adjusted for 2011 NRPA Multi-Agency Shelter Interim Framework Version 1.0 Date - April 2012 Page 10 of 37

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London Resilience Olympic Planning Assumptions

It is assumed for the Games-time period that up-to 22,000 people may be displaced in a “worst-case” scenario3.

During the London 2012 Olympic and Paralympic Games there will be a temporary rise in the population of London. This increase will include a greater-than-usual number of people who are unfamiliar with the city and surrounding areas. In addition there will be an increased proportion of vulnerable individuals. Vulnerabilities may include:

 Language differences  Physical disabilities  Other disabilities which are less immediately discernible

Although their primary legal responsibility is to care for their residents, in the event of an evacuation or sheltering incident involving foreign nationals, Local Authorities have a moral responsibility to provide initial support to those individuals while the extent and likely duration of the incident is made clear. Further support and guidance on this issue can be found via DCLG (please refer back to Section 2, Legal Considerations)..

Responders planning for mass Shelter provision during Games-time should assume that:

 Between 20-30% of those evacuated will require shelter. The numbers requiring shelter may vary according to the demographic of those affected by the initiating incident. Those not normally resident in the Greater London area are unlikely to have friends or family locally with whom they can seek shelter.  For a large-scale incident, a co-ordinated pan-London approach is likely to be required.  During the Games, a greater proportion of those in need of shelter will require rapid assessment of vulnerability;  High occupancy levels across the Greater London area during the Games will mean that hotels, hostels and other temporary accommodations will not be available for use by Local Authorities seeking to re-accommodate those displaced from their homes.  Likewise, pre-identified Shelter facilities may not be available, due to Games-time use.  The opening of large-scale emergency Shelters may be delayed for up to 6 hours after a “sudden impact” incident. This reflects the likely time needed to establish a Strategic Co-ordination Group (SCG) and to secure the use of appropriate venues. These planning assumptions are intended only as a guide. Any mass shelter response will require a dynamic and flexible approach from all partners, to deliver an effective and successful resolution.

3 These figures are based on 30% of evacuees from within a cordon requiring temporary accommodation. The use of existing date is under review relating to capabilities to shelter evacuees. The proportions of households requiring longer-term shelter based on 2.36 people per household (2001 Census) and 42% of those needing temporary accommodation requiring it for 12 months or more (London Resilience Team)

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6. DEFINITIONS and PRINCIPLES The following definitions have been agreed by the London Shelter Working Group and Local Authorities Panel to describe different types of shelter which may be used to provide emergency accommodation.

Although numbers should be taken as approximate, the following is a guide to the number of people expected to be held in each Shelter-type:

For more than 5000 people: Emergency Evacuation Centre (EEC)

Suggested building types include Sports Stadia and large exhibition halls

For up to approximately 5000 people: Short Term Shelter (STS)

Suggested building types include large exhibition halls and large nightclub venues

For typically no more than 200 people (Emergency) Rest Centre (ERC)

As per local arrangements

6.1. Emergency Evacuation Centre (EEC)

EEC Functional Definition A facility offering immediate, basic shelter to a large number of people in the event of an emergency. An EEC does not provide feeding or dormitory facilities but will have basic sanitation and access to drinking water. An EEC is only likely to be needed in the event of an incident requiring Mass Evacuation.

The core principles of the EEC concept are:

 The EEC functions primarily as a centralised marshalling point for onward travel. The hosting Local Authority will not provide food or dormitory facilities at an EEC, due to the likely numbers of people being sheltered.

 It is the responsibility of those requiring special assistance to inform Shelter staff that this is the case. Shelter staff have a responsibility to assist individuals who self- identify vulnerability, but only within the limits of what can reasonably be provided. Due to likely staffing resource limitations, formal registration at an EEC will be restricted only to those identifying that they require special assistance.

 The maximum intended stay of any individual or group of individuals at an EEC is 12 hours. It is expected that most evacuees will leave the EEC independently. Those identified as being unable to do this should be moved to another type of shelter, as appropriate to their needs and the venues available. The only exception to this is if there is an individual whose particular vulnerability requires a transfer to a specialist facility.

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6.1.1. EEC Activation An EEC will typically be required after an incident requiring the evacuation of a significant part of a Borough or Boroughs. It is not intended to provide Shelter to those already in transit, i.e. those evacuated from railway stations or airports. It is intended primarily for residents of the Borough(s) affected.

For details of the Activation process, please refer to Section 7: Alert, Activation and Communications.

Considerations prior to the opening of an EEC should include:

 Agreement by Police Gold and affected Local Authorities, or Evacuation Co-Ordination Group (if convened) that the current or expected number of persons displaced will exceed 5000.

 Selection of the most appropriate venue from a pre-prepared list. Selection should take into account the location and the available/functioning transport infrastructure nearby. This is crucial to facilitate the movement of people both to the shelter and onwards to their eventual destinations. Consideration should be given to factors such as the weather conditions, as this will determine the type of venue used, i.e. whether it is open to the elements. Where possible, fully-covered venues should always be used in preference to those which are partially-covered. Due to the size of the building required, it is likely that the EEC chosen will be in a different Borough to the initiating incident.

 Agreement with the owner/operator of the venue that an EEC can be established on- site and within the desired timeframe. Where possible those negotiating with the owner/operator should request on-site support from staff familiar with the venue, i.e. stadium stewards, contracted security providers and facilities managers.

 The early and continued availability of Local Authority staff in the host Borough to provide, in conjunction with partner agencies, the initial management of the shelter. Please note that it may be necessary to supplement Local Authority staff with staff from other Boroughs if the incident is protracted.

The approach to the venue owner/operator should be made by the local Police or the LLAG on behalf of the ECG.

6.1.2. EEC Command, Control and Management The EEC will be managed by a core management team led by a Shelter Manager (SM) from the hosting Local Authority, or another London Local Authority if circumstances require it. The SM will be supported by the Shelter Management Team (SMT). Membership of this group should be as follows:

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Required on-site Optional

Local Authority Shelter Manager (SM), Local Health Protection Agency (HPA) Authority Liaison Officers (LALOs) Other Local Authority services as deemed Police necessary by SM, i.e. Child Protection Services LAS and local Primary Care Trust Police Casualty Bureau representative Voluntary Sector responders

Owner/Operator representative

Transport for London (TfL)

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6.1.3. EEC: Core Agency Roles and Responsibilities This table lists the roles and responsibilities of agencies forming the core SMT membership. It is not exhaustive.

Organisation Role Responsibility Suggested minimum on-site presence

Local Authority To lead on shelter management  To provide shelter manager and additional Local 1 x SM, 10 x other Local Authority staff including LALOs, and distribution of vulnerable Authority staff Emergency planning teams and representatives of other Local evacuees to smaller shelters as Authority services as deemed necessary. appropriate.  To lead the shelter management team and co- ordinate other agencies on-site NOTE: Staff may be drawn from more than one Local Authority. In this instance the SM from the host Borough has the management  To liaise with partners to arrange onward lead. transportation of evacuees where necessary

Owner/Operator To provide guidance on venue  To support Shelter Manager and management 1 x Facilities manager or similar; as many experienced venue staff representative operations team as can be made available.

Police To support the safe and secure  To provide security at the venue As permitted by available resources functioning of the shelter  To be an information link to the wider Police incident response

LAS To provide urgent medical care  To assist in the sourcing of urgently needed As determined by NHS London, which will co-ordinate the overall medication Health sector response. Primary Care To support Local Authority staff Trust (PCT)  To assist in the assessment of medical needs

Voluntary To support the Local Authority  To provide support to LAS by delivering First Aid As permitted by available resources. Sector and medical response. responders  To provide Humanitarian Assistance where NOTE: Voluntary sector responders will be co-ordinated by the needed Shelter Manager. This may be delegated by Shelter Manager to another Local Authority member of the Shelter Management Team.

Transport for To support the flow of evacuees  To liaise with TfL to gain accurate picture of As permitted by available resources/determined by TfL London (TfL) to and from the EEC available transport resources management in consultation with Evacuation Co-ordination Group.

 With SM, to co-ordinate the onward movement of evacuees

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6.2. Short Term Shelter (STS) STS Functional Definition A facility offering short term shelter for those who cannot make alternative arrangements. An STS will make basic food provision but is unlikely to provide dormitory facilities. All efforts will be made to register occupants where possible, in order to identify welfare requirements.

The core principles of the STS concept are:

 An STS may be opened to redistribute evacuees previously sent to an EEC or may be opened independently to provide basic shelter for up to approximately 5000 people.

An STS is primarily intended for use by people awaiting transfer to Borough-level Emergency Rest Centre (ERC) accommodation. It may also be used in place of a full EEC, if the numbers requiring initial evacuation do not justify the opening of an EEC.

 Due to the potentially large numbers of people at an STS, there will be no provision of dormitory facilities. Basic food provision will be made where possible. Registration of those being sheltered will be limited to ascertaining accuracy of numbers and home Boroughs, and will take place only if shelter staffing levels and resources permit.

 The intended maximum stay at an STS is 48 hours. This is to allow Boroughs to establish sufficient ERC sites. It may be necessary to establish a network of multiple STS and ERC sites to fully redistribute the population of a single EEC.

6.2.1. STS Activation The activation of an STS is likely to be ordered by the on-call London Local Authority Gold in consultation with the Evacuation Co-ordination Group (ECG). Considerations prior to the opening of an STS should include:

 Regularly updated information from the EEC Shelter Management Team on the number of people at an EEC who have reported that they are unable to make private onward travel arrangements. This will dictate whether an STS is necessary, and will indicate whether multiple STS sites will be necessary.

 Selection of STS site(s) from a pre-prepared list of possible venues. Consideration should be given to the location of the sites in relation to the EEC, and the availability of transport access and resources.

 Agreement with the owner/operator of the venue that it may be used for this purpose. As with the EEC, staffing support should be sought from the owner/operator wherever possible.

 Availability of Local Authority and other partner agencies to provide staffing.

The approach to the venue owner/operator should be made by Police or the LLAG on behalf of the ECG.

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6.2.2. STS Command, Control and Management The STS will be managed by a Shelter Manager (SM) from the hosting Local Authority, or another London Local Authority if circumstances require it. The SM will be supported by the Shelter Management Team (SMT). Membership of this group should be as follows:

Required on-site Optional

Local Authority Shelter Manager, Local Health Protection Agency (HPA) Authority Liaison Officers (LALOs), Other Local Authority services as deemed Police Casualty Bureau representative necessary by SM, i.e. Child Protection Services

Police

LAS and local Primary Care Trust

Voluntary Sector responders

Owner/Operator representative

Transport for London (TfL)

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6.2.3. STS: Core Agency Roles and Responsibilities This table lists the roles and responsibilities of agencies forming the core SMT membership. It is not exhaustive.

Organisation Role Responsibility Suggested minimum on-site presence

 With SM, to co-ordinate the onward movement of evacuees

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6.3. (Emergency) Rest Centre (ERC)

ERC Functional Definition A facility offering basic feeding, washing and dormitory provision for those without alternative accommodation options.

As previously stated this framework is not intended to supersede or replace existing Borough emergency Shelter plans. Please therefore refer to your Borough Rest Centre plan.

Please note that in the event of a large-scale displacement of people, multiple ERCs with dormitory capability across several London Boroughs may be required.

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7. ALERT, ACTIVATION and COMMUNICATIONS

The decision-making process leading to the opening of mass or multiple Shelters is likely to be complex and to require constant information-sharing and co-ordination between key responders and Gold (if established).

The following diagrams represent the decision-making process and flow of information for Sudden Impact and Rising Tide incidents, the criteria for venue selection, and the relationship between the Shelter Management Team and the SCG.

Please see overleaf.

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7.1. Shelter Activation: Sudden Impact Incident

Sudden Impact Incident

CONSIDERATIONS  Should this be declared a Major Incident? LEAD  Should an SCG be convened? RESPONDING  Which are the appropriate Cat. 1 and Cat. 2 AGENCY responders?

Likely to be Police or London  What is the extent/feasibility of local self-evacuation? Fire Brigade  Is activation of the Mass Evacuation Plan necessary?  What are the available means of public messaging?

Evacuation Plan activated SHELTER NEED Evacuation IDENTIFIED Co-Ordination Group established

LOCAL AUTHORITY  Implement Communications and alerting CAT 1 & 2 RESPONDERS procedure/strategy VOLUNTARY SECTOR// BUSINESSES  Activate Emergency procedures  Implement Communications and  Liaise with Blue Light services alerting procedures  Activate Emergency procedures  Liaise with Voluntary Organisations  On establishment of EEC, immediately begin preparation of STS  Standby Emergency Rest Centres  Scope requirements and implications  Alert schools and vulnerable groups Assess when safe to lift Shelter recommendation – Standby transport plans  Lead Officer in consultation with key stakeholders  Initiate recovery group

RECOVERY Communicate controlled dispersal or return home.

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7.2. Shelter Activation: Rising Tide Incident

CONSIDERATIONS  Should an SCG be convened?  Which Cat. 1 and Cat. 2 responders should be involved TRIPARTITE in the incident response? DISCUSSION  What is the extent/feasibility of local self-evacuation?

MPS  Is activation of the Mass Evacuation Plan necessary? Raising Agency  What are the available means of public messaging, and London Resilience Team how is a multi-agency message being agreed?  What resources are available to facilitate the movement and shelter of displaced persons?

Evacuation Plan activated SHELTER NEED Evacuation IDENTIFIED Co-Ordination Group established

LOCAL AUTHORITY  Implement Communications and alerting procedure/strategy  Activate Emergency procedures CAT 1 & 2 RESPONDERS VOLUNTARY SECTOR/BUSINESSES  Liaise with Blue Light services  Implement Communications and alerting  Liaise with Voluntary Organisations procedures  On establishment of EEC, immediately  Activate Emergency procedures begin preparation of STS  Standby Emergency Rest Centres  Scope requirements and implications  Alert schools and vulnerable groups  Standby transport plans  Initiate recovery group Assess when safe to lift Shelter recommendation – Lead Officer in consultation with key stakeholders

RECOVERY Communicate controlled dispersal or return home.

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7.3. Shelter Venue Selection: Decision-Making Process

The numbers below relate to the number of people affected by the incident, not necessarily the numbers of people requiring Shelter.

INCIDENT OCCURS

Fewer 200 People 200 – 5000 People 5000+ People displaced displaced displaced

Emergency Evacuation Emergency Rest Centre Short Term Shelter (STS) Centre (EEC) (ERC) Multiple facilities may be Multiple facilities may be Multiple facilities may be required required required

GO TO Section 6.3 GO TO Section 6.2 GO TO Section 6.1

Displaced from “home” for more than 6 hours? Unable to sleep in ERC due to Is unlikely to be able to return identified Vulnerabilities home within 48 hours and is Identified vulnerabilities? unable to make own Displaced from their home for accommodation arrangements Unable to make own an excess of 48 hours? accommodation arrangements?

Unable to make own arrangements to return home? O O N N S E Y O

Support with return home (if available) N

Temporary Acommodation

Individuals encouraged to depart facility and make own arrangements with 12 hours

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7.4. Shelter Management: Command and Control

In the event that the Shelter plan is activated and the incident requires a Strategic Co- Ordinating Group (SCG) to be convened, the Shelter Management Teams will be supported as depicted below:

Other Government Support from other Departments LLRF areas

GOLD Strategic Decision-Making

Strategic Co-Ordinating Group Government Liaison (SCG) Team London Local Authority Gold (LLAG)

Evacuation Co- Ordination Group (ECG)

London Local Authority Multi-Agency Co-Ordination Centre Shelter Management Team (LLACC) Led by Local Authority Humanitarian Assistance Liaison Officer (HALO)

NHS London Borough Emergency TfL Shelter Manager (SM) Control Centre Police Local Authority Staff MPS/CoLP (BECC)

Voluntary Sector

This Command and Control structure is designed to be scaled to allow multiple Shelters in different Boroughs to be opened and running simultaneously. All Local Authority shelter staff should maintain regular contact with the local BECC.

7.5. Dynamic Risk Assessment Please see full Framework document (to be completed 2013).

A dynamic risk assessment is undertaken as events develop and is applied in situations that are unpredictable or subject to rapid change. In dynamic situations, the risk assessment must be undertaken prior, during and after the execution of any task or operation.

7.6. Special Considerations

Flooding Prior to using Local Authority established Shelters there must be a careful assessment that they are not likely to be at risk from an escalating flood situation. Response considerations need to look at the longer term, as temporary accommodation may be for many months while homes are dried out and repaired, anecdotal evidence suggests that this could be 12–18 months.

Evacuation of Vulnerable persons Due consideration must be assigned to the identification of any vulnerable people as part of the risk assessment.

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There are many reasons why a person may be vulnerable and need assistance. Personal details may be held by many different agencies.

7.7. Warning and Informing Please see full Framework document (to be completed 2013).

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8. OPERATIONAL CONSIDERATIONS Please note that this section will be populated in the full Framework document (2013).

8.1. Arrivals and Reception

8.2. Registration and documentation

8.3. Provision of information

8.4. Medical Provision

8.5. Practical Support

8.6. Security and Safeguarding

8.7. Catering and Feeding

8.8. Animal Welfare

8.9. Dormitory Provision

8.10. Emotional and Spiritual Support

8.11. Handover

8.12. Staff Welfare and Safety

8.13. Stand-down

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APPENDIX A: Suggested Games-time Shelter Venues

Please note that NONE of these venues have been approached. They are suggestions of facilities that could be approached for use in the event of a Major Incident. Those coloured in Yellow compliment the transport and traffic evacuation plans and support onward travel from an established Emergency Evacuation Centre.

The intention to contact any of these venues should be communicated to the hosting Borough Council prior to initial liaison.

Nearest LUL Additional Venue Borough Capacity Shelter Station Info/Operator Emirates 142 Exec Islington 60361 Seated EEC Arsenal / Holloway Stadium suites Rugby Twickenham Rail Twickenham Richmond 82000 EEC Football Station Union West Ham Upton Park Newham 35016 EEC United FC Valley Park Croydon EEC (IKEA) Hammersmith Standing 5039 Hammersmith and Fulham STS Apollo Sitting 3632 Elephant and Ministry of Sound Southwark 3500 STS Castle Mornington The Mint KOKO Camden 1500 STS Crescent Group SEOne Southwark 3000 STS London Bridge Fabric Islington 2500 STS Farringdon The Mama The Forum Camden 2110 STS Kentish Town Group

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Nearest LUL Additional Venue Borough Capacity Shelter Station Info/Operator The Brixton The Academy Lambeth 4700 STS Brixton Academy Group The Shepherds The Academy Hammersmith and Fulham 2000 STS Bush Empire Group Elephant and The Elephant The Coronet Southwark 2600 STS Castle (New Kent Group Road) 14 break out The Great Hall 2160 (seating) rooms for Queen Elizabeth II Conference Centre 100-700 and Central Hall Westminster STS 2067m2 Lecture Hall 623 sq. m 20 additional Library 294 sq. syndicate rooms Swiss Cottage Leisure Centre Camden Swiss Cottage and Library CAFC Charlton FC Greenwich 27111 EEC Holdings Roman Chelsea FC Hammersmith and Fulham 41837 EEC Abramovich QPR QPR Hammersmith and Fulham 18360 EEC Holdings Ltd Tottenham Whitehart Lane Haringey 36320 EEC Hotspur FC Concert Hall - Seating 1794 10 rooms Fairfield Halls Croydon STS Total Capacity 3494 available NB. – It is intended that an MOU be agreed with any identified facility for inclusion into the final Shelter Framework (work to be completed post Olympics)

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APPENDIX B: Shelter Management Team Meeting Agenda (suggested topics)

It should be recognised that the demands upon staff from all agencies at either an EEC or STS are likely to be significant and will preclude lengthy meetings. It is however recommended that a supervisory-level representative from each agency attend meetings at no less than one-hourly intervals to allow an up-to-date information picture to be maintained.

The meeting will be chaired by the Shelter Manager or another delegated Local Authority staff member. The agenda below is designed to be used at all shelter types.

Shelter Management Team Agenda

1) Situational Overview Chair/Police

a. Incident and expected duration

b. Estimated numbers at shelter(s)

2) Critical issues All Agencies

3) Feedback on areas of responsibility All Agencies

4) Staffing and Resource availability: All Agencies

a. Current;

b. Anticipated;

c. Areas of concern (resources)

5) Areas of Concern (general) All Agencies

6) Onward travel: TfL/Local Authority/Police

a. Network status

b. Resource availability

c. Estimated numbers requiring further shelter

d. Estimated further arrivals at shelter

7) Any other business/time of next meeting Chair/All Agencies

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APPENDIX C: Food Provision in Shelters Arrangements to be confirmed

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APPENDIX D: Key Consumables Checklist and Sourcing Resources will be listed firstly by General Basics, followed by suggested Agency-specific items. For ERC resources please refer to the appropriate Local Authority rest centre plan.

EEC & STS Consumables

General

Local Authority

Police

Owner/Operator

PCT

Voluntary Sector

TfL

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APPENDIX E: Information for London Local Authority Gold (LLAG) Arrangements to be confirmed

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APPENDIX F: London Voluntary Sector Panel Capability Inclusion to be agreed.

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APPENDIX G: All Agency Roles and Responsibilities As at March 2012

Organisation Role Responsibility

Local Authority To lead on shelter management and  To provide shelter manager and additional Local Authority staff distribution of vulnerable evacuees to smaller shelters as appropriate.  To lead the shelter management team and co-ordinate other agencies on-site

 To liaise with partners to arrange onward transportation of evacuees where necessary

Owner/Operator To provide guidance on venue operations  To support Shelter Manager and management team representative

Police To support the safe and secure functioning  To provide security at the venue of the shelter  To be an information link to the wider Police incident response

LAS To provide urgent medical care  To assist in the sourcing of urgently needed medication

Primary Care Trust To support Local Authority staff  To assist in the assessment of medical needs (PCT)

Voluntary Sector To support the Local Authority and medical  To provide support to LAS by delivering First Aid responders response.  To provide Humanitarian Assistance where needed

Transport for London To support the flow of evacuees to and  To liaise with TfL to gain accurate picture of available transport (TfL) from the EEC resources

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 With SM, to co-ordinate the onward movement of evacuees

London Resilience  Team (LRT)

Health Protection  Agency

Department for  Communities and Local Government



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APPENDIX H: Supplementary Documents

Cabinet Office Evacuation and Shelter Guidance: http://www.cabinetoffice.gov.uk/resource- library/evacution-and-shelter-guidance

London Mass Evacuation Plan

Cabinet Office “Identifying people who are Vulnerable in a Crisis”: www.cabinetoffice.gov.uk/media/132976/vulnerable_guidance.pdf

London Emergency Services Liaison Panel (LESLP) 8th Edition

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APPENDIX I: Glossary To be completed for full framework (2013)

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