COMHAIRLE NAN EILEAN SIAR 2013/14 EMERGENCY PLANNING ANNUAL REPORT

1. INTRODUCTION

This is the second annual report detailing the Emergency Planning Service within Comhairle nan Eilean Siar. It covers the financial year 2013/14 and details the framework and activities undertaken to support and deliver the statutory function across the Comhairle and wider Community.

We live in a complex and increasingly interdependent society. Whilst this brings many benefits, it also leaves us, potentially, more vulnerable to a number of challenges. These challenges take many forms, both new and old. Irrespective of the nature of the challenge, maintaining the continuity of our way of life or returning to relative normality after a disruptive event, requires resilience. Resilience is defined as “the capacity of an individual, community or system to adapt in order to sustain an acceptable level of function, structure and identity”. In all of this, a robust civil contingencies planning process is a key factor in establishing resilience.

2. LEGISLATION

2.1 The Civil Contingencies Act 2004

The Civil Contingencies Act 2004 seeks to minimise disruption in the event of an emergency and to ensure that the UK is better prepared to deal with a range of emergencies. The Act applies to the whole of the UK, reflects the various devolution settlements and is separated into two substantive parts:

• Part 1: focuses on local arrangements for civil protection, establishing a statutory framework of roles and responsibilities for local responders; • Part 2: focuses on emergency powers, establishing a framework for the use of special legislative measures that may be required to deal with exceptionally serious emergencies.

2.2 The Civil Contingencies Act 2004 (Contingency Planning) () Regulations 2005

Whilst responsibility for most resilience and civil contingencies matters is devolved, some key issues, such as national security, counter-terrorism and energy policy, are reserved to the UK. In 2006 the UK and Scottish governments agreed a concordat to ensure effective cooperation on civil contingencies issues and consistent application of the Act across the UK. Whilst this is not a legally binding document, there is a strong expectation that both governments will continue to observe its terms.

2.3 Other Legislation

• Control of Major Accident Hazards Regulations 1999 (COMAH) • Pipelines Safety Regulations 1996 (PSR)

2.3 New Resilience Structures in Scotland

As a consequence of the move to a single Police and Fire Service in Scotland, the existing 8 Strategic Co-ordinating Group (Constabulary areas, SCG’s) were changed to 3 Regional Resilience Partnerships areas (RRP’s) – each supported by Local Resilience Partnerships (LRP’s) on 1st November 2013. The 3 RRP areas mirror the North, East and West areas established by Police and Fire to support strategic management of their local activity. However the local flexibility that exists for partners to determine the most effective area- based, and functional, working will be maintained. It is widely agreed that the majority of multi-agency response activity would continue to be managed at a localised level. Amendments to the Civil Contingencies Act Regulations were included in the Police and Fire reform process, these Regulations simply change the name SCG to RRP and re-designate the boundary areas.

3. RESPONDERS

The Act imposes specific duties on two categories of ‘responders’:

• Category 1 responders are defined as the police, ambulance, fire and rescue services, local authorities, NHS Health Boards and the Scottish Environment Protection Agency. Whilst the majority of Scottish Category 1 responders operate exclusively within Scotland, the responsibilities of the Maritime & Coastguard Agency (MCA) extends to the entire UK.

• Category 2 responders are defined as gas and electricity companies, transport operators, highway and harbour authorities, telecommunications providers, Scottish Water, the Health and Safety Executive and NHS National Services Scotland.

4. THE ACT’S 7 DUTIES

There are seven main duties under Part 1 of the Act, aimed at ensuring effective arrangements are in place for planning for emergencies, responding to emergencies and the continued delivery of services.

i. Duty to assess risk ii. Duty to maintain emergency plans iii. Duty to maintain business continuity plans iv. Duty to promote business continuity v. Duty to communicate with the public vi. Duty to share information vii. Duty to co-operate.

5. INTEGRATED EMERGENCY MANAGEMENT: DOCTRINE AND PRINCIPLES

How we develop resilience in the Western Isles is based on the doctrine of Integrated Emergency Management (IEM). The aim of IEM is to develop flexible and adaptable arrangements in response to emergencies, whether foreseen or unforeseen. It is based on a multi-agency approach and the effective co-ordination of those agencies. It involves Category 1 and Category 2 responders (as defined in the Act) and also the voluntary sector, local businesses and our communities.

This wider approach to the concept of resilience will ensure that we make use of all skills and resources at our disposal and will play a central role in working towards the outcome of having strong, resilient and supportive communities. 6. WESTERN ISLES EMERGENCY PLANNING COORDINATING GROUP (WIEPCG)

The WIEPCG was formed in the late 1990’s, in 2005 it was reviewed and restructured to reflect the requirements of the Civil Contingencies Act and to respond to the gaps identified during the Severe Weather event in January 2005. It represents the interests of all the Category 1, 2 organisations and voluntary groups in the Western Isles. The role of WIEPCG is to promote effective integrated emergency preparedness in the Western Isles.

The Group meets 4 times per annum in its multi-agency planning mode and as required during the response to and recovery from a major emergency or significant disruptive event in the community. The Chair of the WIEPCG is currently the Police Area Commander; the Vice Chair is the Local Maritime & Coastguard Agency Rescue Team Manager. The Group is administered by CNES Emergency Planning.

The Uist and Barra Emergency Planning sub-group meets twice a year in planning mode (October & February) the Chair Alasdair MacEachan CNES, attends WIEPCG planning meetings in Stornoway. The Barra Emergency Planning Group was formed in 2013, the multi-agency Group is chaired by Police Scotland. The Group received training in the form of the Scottish Resilience “Integrated Emergency Management” course in November 2013 which was delivered by CNES, blue light planning partners and the RRP training and Exercising Coordinator.

6.1 Partnership Working

CNES Emergency Planning are leading on a number of Resilience workstreams and are represented on the following Regional & Local Groups;

• CNES Chief Executive, Malcolm Burr is a member of the North Area Regional Resilience Partnership (RRP) and the Highlands & Islands Local Resilience Partnership (LRP). • Andy MacDonald, CNES Risk & Emergency Planning Manager attends the H&I LRP and is a member of the Highlands & Islands LRP working group. • Regional Animal Health Group • local Flood Risk Management Plan District Partnership • Western Isles Care for People affected by Emergencies Group • HIAL (s) Planning Groups • WIEPCG Exercise Planning Group • Western Isles Community Risk Register Group • West of Scotland Marine Safety Committee • Western Isles Public Health Outbreak Control Team

7. EMERGENCY PLANS

Emergency Planning meets the Comhairles statutory and humanitarian obligations to be prepared, in the form of contingency plans, to respond to and mitigate the effects of Emergencies on Communities in the Western Isles. The Comhairle also supports local businesses with advice on Business Continuity matters to ensure essential services can be delivered during and following any disruptive challenge to our Communities.

7.1 Current Comhairle Plans:

• CNES Emergency Plan • CNES Severe Weather Plan • Western Isles Emergency Rest Centre(s) Plan • Western Isles Mass Fatalities Plan • Western Isles Multi Agency Response Plan • Recovery Plan • Control of Major Accident Hazards Plan (COMAH) (Off Site) SGN Top Tier Site, Stornoway • Pipeline Safety Plan, SGN Site - No2 Pier/SGN Site, Stornoway • Oil Pollution Plans (Technical Services Department)

8. COMMUNITY RESILIENCE

Community resilience is defined by the Scottish Government as:

"Communities and individuals harnessing resources and expertise to help themselves prepare for, respond to and recover from emergencies, in a way that complements the work of the emergency responders."

It is based on a culture of preparedness, in which individuals, communities and organisations take responsibility to prepare for, respond to and recover from emergencies.

Preparing Scotland, Scottish Guidance on Resilience states that all responders should support the development of community resilience and should apply and encourage an innovative approach. Building community resilience should not be seen as an add-on, but should be carried out as part of responders' day-to-day activities. The potential return on investment for responders in promoting community resilience is high, as they can unlock skills, knowledge and resources held by the entire community.

CNES Emergency Planning have fully supported the principles of Community Resilience in 2013/14 and encouraged Community Groups to prepare Community Emergency Plans using the National templates. Community Resilience Workshops were held in the Clan MacQuarrie Community Centre, Borve, Isle of Lewis on the evening of 14 May 2013 and Community Hall, on the evening of 6 November 2013. Further workshops are planned for later in 2014.

9. CNES EMERGENCY CENTRE

The Comhairle Emergency Centre is located adjacent to “Faire”, the CNES Community Alarm Service within Dun Eisdean, Westview Terrace, Stornoway.

There are two main rooms:

• The Control Room has 5 x operator computer terminals, 5 x phone lines, 2 x Fax machines, CNES VHF Radio set, Marine Band VHF Radio set, 2 x digital Airwave handsets and 2 x BT Business Wi-Fi hubs. The room is also equipped with wall mounted maps of the Western Isles and whiteboards.

• The Conference Room has accommodation for 8 people, 8 x phone lines including conference call facilities, IT trunking and connections for Pc’s/laptops and a wall mounted 52inch plasma TV monitor.

CNES also have 2 x Emergency Landrovers which are equipped as mobile communications vehicles, one based in Stornoway and the other located at Balivanich. The vehicles are operated and maintained by Technical Services Department on behalf of Emergency Planning under the terms of a Service Level Agreement.

10. EXERCISES

A number of Exercises took place which CNES Planned/Organised or participated in during 2013/14 at a Local and Regional level:

• March 2013 - Exercise Green Delta (long term recovery) Stornoway • April 2013 – Scottish Water, Waterborne Hazard Exercise, Stornoway • June 2013 – “Live Exercise” Crannog III • August 2013- Public Communication Group tabletop, Police HQ • October 2013 – Emergency Plan tabletop, Exercise Thistle • October 2013 - Benbecula Airport “Live Exercise” Olympic II • October 2013 – Regional Communications Exercise, UHI North Sites • November 2013 – Exercise Green Delta, Uist • Business Continuity Exercise – CNES Development Department Plan test • March 2014 – Exercise Creed Park, RTC/Decontamination tabletop, Stornoway

10.1 Planned Exercises

• 20 May 2014 – Live Exercise, “Creed Park” RTC/Decontamination • November/December 2014 – SGN Gas Plant COMAH, “Gaslight” tabletop exercise

11. INCIDENTS / EVENTS

There were a number of Incidents/Events during 2013/14:

• Severe Weather (Road closures, service disruption, communications) • Wild Fires • Power Outages • Searches • RTC - Bus Crash • Human Health Outbreak – C.diff Uist & Barra • Hebcelt Festival Emergency Planning

11.1 Forthcoming Events

• Commonwealth Baton Relay – Western Isles 7th& 8th July 2014 • National Resilience Week, Ready Winter Campaign/Roadshows (Tesco, Stornoway)

12. TRAINING

A programme of training has been delivered for CNES staff in a range of Emergency Planning disciplines during 2013/14 at Strategic, Tactical and Operational Level:

• Ports & Harbours Code(s) Workshop, Stornoway • Met Office National Stakeholder Workshop, Perth (CNES EP delivered presentation on Severe weather planning) • CNES Business Continuity Planning Workshop delivered by Zurich Insurance • Crisis Communication Media Training, Stornoway • Data Sharing seminar, visit to Stornoway by Information Commissioner • IEM Course, Barra • Crisis Communication Media Training, Uist • SEPA/Met Office Flooding/Weather Workshop, Stornoway

13. BUSINESS CONTINUITY PLANNING

The Civil Contingencies Act 2004 (CCA) requires Local Authorities to maintain plans to ensure that they can continue to deliver their critical services in the event of an emergency as far as reasonably practicable.

Business Continuity Management (BCM) is a planned process that helps manage the continuity of service delivery following an unexpected disruption to normal working. BCM is a vital component of Emergency Planning and overall risk management which itself forms an integral part of Corporate Governance. The Comhairle has adopted BS 25999, BCM Code of practice, as its management system, to align to. Plans are currently being tested by Departments and Business units with the assistance of the Comhairle Risk Management Officers.

14. COMMUNITY RISK REGISTER

The Community Risk Register (CRR) is an assessment of the risks within the Western Isles area agreed by WIEPCG as a basis for supporting the preparation of emergency plans.

This step in the emergency planning process ensures that the plans that are developed are proportionate to the risk. The Civil Contingencies Act (CCA) 2004 places a legal duty on responders to undertake and maintain them in a Community Risk Register, and publish this register. Risks in this context are those that could result in a major emergency at any location within the Western Isles.

Risk assessment provides a rational basis for prioritisation of objectives, work programmes and resource allocation. Responders must assess the likelihood and impact of risks in their area. They must collaborate in producing a Community Risk Register that must be maintained.

Category 1 responders must consider the impact of risks upon their functions and review the effectiveness of their planning and their ability to respond to those risks. Responders do not require a discrete plan for every risk. If generic plans can cope with the impacts no additional planning is necessary. If they cannot cope specific plans may be required.

The above information provides the key guidance for the Western Isles Emergency Planning Co-ordinating Group for the process of assessing the risks in the Islands. A summary of the WIEPCG Community Risk Register is attached at Appendix A:

Andy MacDonald Risk & Emergency Planning Manager Comhairle nan Eilean Siar Sandwick Road, Stornoway COMMUNITY RISK REGISTER FOR THE WESTERN ISLES Appendix A

DATE OF REVISION: 21 June 2013 NEXT REVIEW DATE: 1 June 2014 Risk Ref. Hazard or Hazard or Likelihood Impact Risk Controls in Additional Risk Risk Lead Agency Review Date and Hazard Threat Sub- Threat Rating Place Treatment Priority for or Threat Category Description Required Assessment Category H1 Explosion LPG Depot Rare Moderate Medium COMAH Plans Risk Assessment - SFRS and/or Fire 2 3 Generic H1.doc HL1 Explosion LPG/Gas Negligible Moderate Medium Pipeline Plan Risk Assessment - SFRS and/or Fire Pipeline 1 3 Generic HL1.doc H4 Explosion Fuel Depot Rare Significant High Generic Plan Risk Assessment - SFRS and/or Fire 2 4 Generic H4.doc H15 Maritime Oil Spill Rare Significant High Specific Plan Community Risk MCA Pollution 2 4 Regular Exercises Register - MCA July 06.xls HL8 Vessel Cruise Ships Negligible Catastrophic Medium Generic Plan Community Risk MCA Sinking UK Island Ferries 1 5 Register - MCA Waters/Inland July 06.xls HL9 Aviation Island Negligible Moderate Medium Specific Plan Barra Airport.doc HIA Incident 1 3 Benbecula Airport.doc Stornoway Airport.doc HISCG1 Transport Single Lifeline Rare Significant High Generic Plan Risk Assessment CNES Routes 2 4 Severe Storms and Possible Moderate Generic Plan RA-Storms and Met Office H17 Weather Gales 4 3 High Gales-MET1.1.doc

HL17 Localised High Tides/Sea Rare Significant High Generic Plan HL17WI SEPA Flooding Surge/High 2 4 Flooding.doc Winds H22 Human Serious Flu Possible Significant Very Specific Plan Western Isles CRR Health Disease Epidemic 4 4 High RA H22, 23, 24.doc H31 Industrial Constraint on Possible Moderate High National Emergency NCH31.pdf Police Action supply of fuel 4 3 Plan for Fuel Scotland due to Business Continuity Industrial Plan Action