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The Role of Second Responders in the Christchurch Emergency: a Wellington Perspective

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The Role of Second Responders in the Christchurch Emergency: a Wellington Perspective Australasian Journal of Disaster and Trauma Studies Volume 18, Number 1 Fallen through the cracks? The role of second responders in the Christchurch emergency: A Wellington perspective earthquake risk throughout New Zealand. However, Beverley McNally on September 4 2010 at 4.35 a.m., this complacency Prince Mohammad Bin Fahd University, Saudi Arabia. was shattered as, Christchurch City, New Zealand, © The Author(s) 2014. (Copyright notice) experienced a magnitude 7.1 earthquake. The quake Author correspondence: was located on a previously unidentified fault line at Dr Beverley McNally Darfield (40 kilometres west of Christchurch City), at a College of Business depth of only 10 kilometres (Geonet, 2012). Prince Mohammad Bin Fahd University Al Khobar, 31952 As this earthquake occurred in the early hours of the Saudi Arabia morning, there was no loss of life directly attributed Email: bmcnally@pmu.edu.sa to the event. However, injuries did occur and its URL: http://trauma.massey.ac.nz/issues/2014-1/AJDTS_18-1_McNally.pdf location and severity meant there was considerable Abstract damage to essential services and infrastructure. In response, municipal authorities and governmental This paper explores the deployment of second organisations from around New Zealand sent employees responders from the Wellington region to Christchurch to the Christchurch region to assist in the restoration of during the civil emergencies of 2010 to 2011. Both essential services. These employees were referred primary and secondary data were analysed using a to as second responders. For the purposes of this realist thematic approach. It was revealed that there study, a second responder is defined as: a worker who were a group of people, known as second responders operates during the response and recovery phases of - employees of local authority and governmental an emergency once the area has been made safe by the organisations, who ‘fell through the cracks’ of the first responders (Laughey, 1989). Second responders emergency management framework. This paper argues may include construction workers, water and sewage that the definition, identification and training of second workers, building inspectors and staff who provide responders have to be prioritised as a part of emergency aid to those affected by the emergency (Betan, 2010; management activities. This exploratory study provides Laughey, 1989). the basis for further research into the role of second Then, on 22 February 2011, a magnitude 6.3 earthquake responders and the challenges confronting both them occurred just 10 kilometres south-east of Christchurch, and those responsible for their deployment. again on a previously unidentified fault line (Geonet, 2012). Many buildings that had remained standing Keywords: Christchurch, earthquakes, second after the 7.1 September 2010 earthquake had been responders, emergency management weakened. The damage caused by the initial quake New Zealand’s position on an earthquake fault line has and the subsequent aftershocks, in excess of 10,000, led to it being referred to as the “shaky isles”, in both meant that they could not withstand this 6.3 event the popular press and academic literature (Blanchard, and consequently they collapsed. The timing of the 2007; Gilbert, 2008; Johnston, Becker, & Paton, 2012). earthquake at 12.51 pm (lunch-time) meant many Yet, as Dowrick and Rhoades (2011) contended, that people were in the central business district streets prior to the Christchurch 2010 and 2011 earthquakes, and in their office buildings. Consequently, there were there have been relatively few major earthquakes in fatalities and a greater number of injuries than occurred New Zealand’s recent history, particularly in terms in the September earthquake. The substantial damage of seismic events located in highly populated areas. that occurred impelled the city authorities to request Dowrick and Rhoades (2011) went on to state that the help from international emergency rescue and recovery last event with a significant number of fatalities occurred teams (first responders) to concentrate on finding those in Napier in 1931. Thus, as Johnston, Becker and Paton, people trapped in buildings together with the recovery of (2011) contended, this situation had led to a high level bodies. Again, municipal authorities and governmental of complacency and a limited understanding about organisations from around New Zealand sent second 9 trauma.massey.ac.nz McNally Australasian Journal of Disaster and Trauma Studies Volume 18, Number 1 response teams to the area to assist with the restoration restoring vital systems to minimal operational levels. of essential services. These responders operated within The extended recovery process includes restoring the the framework of the Civil Defence Emergency Act 2002 community’s quality of life to at least the same level as (Ministry of Civil Defence and Emergency Management, it was before the emergency. Wilding (2011) wrote, that 2014). This Act sets out the requirements for emergency for this recovery phase to be fully effective then resilient management in New Zealand and provides for the all communities are vital. The development of community the phases of the emergency management framework resilience allows the affected communities to grow the and has at its core the emphasis on regionalism at skills, knowledge and ability required so people are able a local government level. As a result, all emergency help themselves during an emergency. This includes management phases are the responsibility of local the identification of the networks of professionals who government and related local agencies. are able to respond to meet the social, economic and health needs of the community (Paton, Johnston, & Accordingly, this study explores one aspect of the Houghton, 1998) response to the Christchurch earthquakes – the challenges confronting managers who were responsible Coleman (2005) went on to assert that while each of the for the deployment of secondary responders from the phases of the emergency management framework is Wellington area to Christchurch from 2010 to 2011. This unique, they frequently overlap each other, particularly background context informed the following research the latter two. However, the effectiveness or otherwise question: What barriers, problems and dilemmas were of an emergency management response is often encountered by emergency management staff when determined in the prevention and preparedness/planning deploying second responders to Christchurch during phases. As stated by White (2011, p. 253): “The quality the emergency? of these two phases determining how well resources within a society can be mobilised to ensure an effective The emergency management framework and its response, thereby facilitating an optimal recovery from role a disaster.” The following definition of emergency management Current thinking ascribes equal priority to all the was adopted for the purposes of this study: “emergency elements of the emergency management framework management is the managerial function charged with (Wilding, 2011). Therefore, to ensure an effective creating the framework within which communities response to an emergency it is imperative that resources reduce vulnerability to hazards and cope with disasters” and responsibilities within the emergency management (Dowrick & Rhoades, 2005, p. 4). discipline are planned and co-ordinated both efficiently When managing in a crisis emergency managers are and effectively (Coleman, 2005). Yet as E. Lagadec guided by the principles of an emergency management (2009) argues, the networks of stakeholders that exist st framework that comprises four key phases (Blanchard, in the 21 Century and who take part in the planning, 2007; Petak, 1985; Sandhu, 2002; Subramaniam, response or recovery phases add new levels of Hassan, & Faridahwati, 2010; Waugh & Streib, complexity during crises such as that experienced in 2006). First, is the reduction phase, which involves Christchurch. stakeholder groups, for example, politicians, emergency Subsequently, Johnston et al. (2012) drew attention to professionals and community groups, deciding how to evidence in international research that emphasized the mitigate the health, safety and welfare risks to a society importance of strong local government capacity and a affected by an emergency. This is achieved, in part, cohesive system of public, private and volunteer groups by the implementation of a risk reduction programme. in the response and recovery phase. That is, there is Second, preparedness and planning, which consists of a cohesive system of networks where the sharing of developing a response plan and training first responders knowledge and skills between the different agencies and to save lives and reduce disaster damage. Third, the groups is of the highest quality (Britton, 2001). Thus, response phase, that is concerned with the provision the argument of P. Lagadec (1993) was acknowledged, of emergency aid and assistance, thereby reducing where he stated that emergency management research secondary damage and maximising the recovery phases. must not only provide answers for those involved crisis Finally, phase four, recovery, which includes providing management. It should also broaden horizons and focus immediate support early during the recovery period, thought, so that an awareness of the problem is not the 10 trauma.massey.ac.nz Australasian Journal of Disaster and Trauma Studies McNally Volume 18, Number 1 only outcome. Accordingly, emergency
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