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The Cyclone Debbie Review Inspector-General Emergency Management Report 1: 2017–18 The Cyclone Debbie Review Lessons for delivering value and confidence through trust and empowerment # Major section title Topic title i Inspector-General Emergency Management Front cover images Flooding encroaching on Rockhampton airport Photo courtesy Queensland Airlie Beach lashed Fire and Emergency by wind and rain Services Photo courtesy ABC News – Dan Peled Pine Creek Road cut at Springbrook, Gold Coast hinterland Photo courtesy of ABC News – supplied: Kira Lowe Office of the Inspector-General Emergency Management Phone (07) 3029 8813 Email [email protected] Web www.igem.qld.gov.au Postal address GPO Box 1425, Mail Cluster 15.7 Brisbane, Queensland 4001 The Cyclone Debbie Review The Cyclone Debbie Review Lessons for delivering value and confidence through trust and empowerment A chapel on Hamilton Island. Photo courtesy ABC News – supplied: Dennis Garrett 1 Inspector-General Emergency Management Document details Security classification PUBLIC Date of review of 10 August 2017 security classification Authority Office of the Inspector-General Emergency Management Author Office of the Inspector-General Emergency Management Document status FINAL Version 1 ISSN 2204-969X Contact details All enquiries regarding this document should be directed to the Office of the Inspector-General Emergency Management: • Email: [email protected] • Telephone: 07 3029 8813 • Mailing Address: IGEM Mail Cluster 15.7, GPO Box 1425, Brisbane Qld 4001 The Queensland Government, acting through the Office of the Inspector-General Emergency Management, supports and encourages the dissemination and exchange of publicly funded information and endorses the use of the Australian Governments Open Access and Licensing Framework (AusGOAL). All Office of the Inspector-General Emergency Management material in this document, any material protected by a trademark, and unless otherwise noted, is licensed under a Creative Commons Attribution 4.0 licence – https://creativecommons.org/licenses/by/4.0/legalcode The Office of the Inspector-General Emergency Management has undertaken reasonable enquiries to identify material owned by third parties and secure permission for its reproduction. Permission may need to be obtained from third parties to re-use their material. Written requests relating to the copyright in this document should be addressed to: Intellectual Property Coordinator, Legal Services, Ministerial and Executive Services Public Safety Business Agency, GPO Box 9879, Brisbane Qld 4001 Email: [email protected] Disclaimer Content disclaimer To the extent possible under applicable law, the material in this document is supplied as-is and This report has been prepared using data as-available, and makes no representations or warranties of any kind whether express, implied, statutory, collected from a diverse range of sources, or otherwise. This includes, without limitation, warranties of title, merchantability, fitness for a particular many of which use unique methodologies purpose, non-infringement, absence of latent or other defects, accuracy, or the presence or absence and individual collation processes; it is of errors, whether or not known or discoverable. Where disclaimers of warranties are not allowed therefore possible that some inconsistencies in full or in part, this disclaimer may not apply. To the extent possible under applicable law, neither may be present despite the best efforts of the the Queensland Government or the Office of the Inspector-General Emergency Management will be Office of the Inspector-General Emergency liable to you on any legal ground (including, without limitation, negligence) or otherwise for any direct, Management to validate and align the raw special, indirect, incidental, consequential, punitive, exemplary, or other losses, costs, expenses, or data utilised throughout this report. damages arising out of the use of the material in this document. Where a limitation of liability is not allowed in full or in part, this limitation may not apply. 2 The Cyclone Debbie Review 21 August 2017 The Honourable Mark Ryan MP Minister for Police, Fire and Emergency Services and Minister for Corrective Services PO Box 15195 BRISBANE QLD 4001 Dear Minister In accordance with your instruction of 13 April 2017, I present a report into the effectiveness of the disaster management system in response to Tropical Cyclone Debbie and associated weather events. We have undertaken this review with the future in mind. We have focussed on identifying the many examples of very good practice that were evident during this event, celebrating them and encouraging their sharing across the sector to assist others. We have also strived to identify, analyse and fully understand any issues that arose and propose a range of improvement strategies. Our recommendations are aimed at enabling the system to deliver greater public value and confidence through trust and empowerment across the sector. Yours sincerely Iain S MacKenzie AFSM Inspector-General Emergency Management Level 31, 1 William Street GPO Box 1425, Cluster 15.7 Brisbane Queensland 4001 Telephone +61 7 3029 8813 # Major section title Topic title 3 Inspector-General Emergency Management Table of Contents 0 Foreword 6 1 Executive Summary 9 2 Introduction 17 Role of the Inspector-General Emergency Management 17 Approach 18 Findings 20 Recommendations 21 3 Underlying precepts 31 A culture of learning 31 What the system set out to achieve 33 Public value and mobilising community 37 4 The three concurrent events 41 North Queensland – cyclone and flooding 45 Getting ready 46 Townsville 49 Burdekin 49 Whitsunday 50 Mackay 52 Isaac 53 A common experience 53 South East Queensland – rapid-onset flooding 55 Rockhampton – slow-onset flooding 63 5 State-Level operations 67 Preparedness 67 Hazards 68 Warnings 69 Evacuation planning 70 Response 70 Health 71 Recovery 71 4 The Cyclone Debbie Review Lessons for delivering value and confidence through trust and empowerment The Cyclone Debbie Review 6 Themes 73 Table of Contents Planning 73 Public information and engagement 84 The Debbie experience 85 Communications infrastructure 88 Information that influences action 88 Authoritative point of truth 90 Warnings and Emergency Alerts 91 Emergency Alert 92 Information management 96 Reporting 99 Visibility 101 Interoperability 102 Briefings 103 Evacuation 104 Evacuation in Queensland 104 Evacuation in Debbie 108 Evacuation and tourism 110 Post-cyclone evacuation 112 Capability 114 Requests for Assistance 115 Staffing 115 Deployment 116 Sustainability 116 Volunteers 118 Exercises and training 119 7 Conclusion 121 Endnotes 122 8 Appendices Appendix A 126 Glossary Appendix B 128 Consultation and engagement Appendix C 130 Summary of relevant recommendations, findings and discussion points from previous Office of the IGEM reviews Appendix D 132 Queensland Reconstruction Authority Natural Disaster Relief and Recovery Arrangements (NDRRA) Activation Summary – Severe Tropical Cyclone Debbie and associated rainfall and flooding, 28 March – 6 April 2017 Contents 5 Inspector-General Emergency Management Foreword Inspector-General Emergency Management The impact of Severe Tropical This Office was tasked with examining Cyclone Debbie across a large area of these three events, not from the Queensland is now well documented and perspective of reviewing the performance the vast recovery effort underway will of any individual agency or any individual continue into the future. Many people, disaster management group, but how the businesses and indeed the environment disaster management system as a whole still have a long road ahead. responded. Reinforcing the Government’s desire to ensure a robust approach to The Queensland Reconstruction Authority continuous improvement across the system reports that damage to infrastructure and this Office undertook to work closely with industry in Queensland following Debbie Queensland Fire and Emergency Services, will exceed $1 billion. So far, the damage Queensland Police Service and the Local to agricultural crops is estimated at almost Government Association of Queensland $1 billion and loss of coal exports could and to attend as many debriefing activities exceed $1.5 billion. Queensland’s tourism as possible. industry has also been severely impacted and the assessment of this cost is still We undertook this review with the aim underway. Within one month of the event, of identifying, analysing and fully more than 100,000 requests for recovery understanding any issue that arose and assistance were received and $25 million to consider improvement strategies for in recovery grants issued. More than the future. Importantly we also focused 2,300 residential properties were on identifying examples of the very good damaged, with almost 1,000 of them practice that had been evident, celebrating declared uninhabitable. these and encouraging their sharing across the sector to assist others. In addition, airports and sea ports were closed, rail lines were cut and numerous We actively sought the views of community major and local road networks sustained members in order to validate our collective significant damage. More than 30 local actions and inform future strategies government authorities were activated that could improve the integration of for Natural Disaster Relief and Recovery government services and deliver safer Arrangements.1 and inclusive communities. The State Recovery Plan includes specific This review
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