A different role for a police officer
Chief Superintendent Michael KEATING APM Queensland Police Service
Director Cyclone Recovery Queensland Reconstruction Authority 201 1
1 I ndex Executive Summary J The role 4 Background.... 4 Impacts of 2010 and2011 Cyclones inNorth Queensland 5 The political context 6 Commonwealth government. 8 State government ...... 8 Local government 9 Authority to act 10 National Disaster Relief and Recovery Arrangements ...... t2 Levels of overview 13 Damage Assessments...... 13 A new approach to funding. l4 The leadership role I4 The scenario...... 15 A smallteam...... Facilities... r6 Mobility ..16 Community engagement...... 17 Implied authority.. 18 Different relationships ...... 18 Relationship as a means of leadership - Interagency... l9 Community recovery 20 Situational Awareness 2l It was about the people 2l Learn from the past look to the future 22 Resilience is the answer...... 23 One year on - closing the North Queensland office.. 24 Conclusion 25 Thankyou 26
2 Executive Summary
The natural disasters across the summer of 2010 201 I posed many problems for the State of Queensland. The quick summary of the events is . Early December 2010 heavy rainfall and flooding in Emerald o Late December 2010 heavy rainfall and flooding in North Queensland o Christmas Day 2010 Tropical Cyclone Tasha crossed the coast and created the consequential flooding that occurred in Emerald the Central Highlands, Bundaberg, North Burnett, Rockhampton and Capricornia. At the end of December the towns of Theodore and Condamine were evacuated. o On January l0 2011 flash flooding wreaked havoc on the Lockyer Valley and Toowoomba. o Across mid January 20II major flooding occurred throughout the South East in particular through Ipswich and Brisbane. o At the end of January 2011 Tropical Cyclone Anthony crossed the Coast near Bowen and in early February 2011 Tropical Cyclone Yasi crossed the coast near Mission Beach. The damage from Tropical cyclone Yasi ranged from total devastation to minor structural damage. In the first three months following Tropical Cyclone Yasi the impact zone received up to 3M of rain. o Through February monsoonal flooding occurred on the east coast north of Townsville and across Far North West Queensland. o Heavy flooding occurred in the Maranoa across April 201 1.
This report is not intended to review the overall response to the summer of disaster that occurred across Queensland in 2010 -2011. The report will discuss the contrast between the pre-existing models and the innovations developed during 20ll that delivered Government assistance and support to the communities impacted by Tropical Cyclone Yasi, The report will review the circumstances that developed through December 2010 and January 201I.
A feature of the innovations applied by government was the appointment of Major General Mick Slater of the Australian Army to head the reconstruction processes which evolved to be the Queensland Reconstruction Authority.
This report will review the circumstances that led to the appointment of a Senior Queensland Service officer to head Cyclone Recovery, within the Queensland Reconstruction Authority model. In doing so, the report will reflect on the economic and political dynamics of the region. The report will contrast the responses to Tropical Cyclone Lany in2006 with those that applied after Tropical Cyclone Yasi in 2011. This leadership role of 201I was different to the role performed by General Peter Cosgrove (Retired) when he headed the reconstruction efforts following Tropical Cyclone Lany in2006.
The report will reflect on the leadership challenge of the role when the role was not supported by any legislative authority. Finally the report will comment on the impacts of disaster and how those impacts have and can be minimised through strategic leadership.
J The role
Are you prepared to assist the community ønd industry to rebuild following a major disaster event? The community is lookingþr immediate solutions. You will need to relocate to another town and open an ffice for an Agency that does not exist? There is no legislative authority to support your role or empower you, In doing this you will report to an executive management team with whom you have no formal experience.
This role will be fundamental to the rebuilding of homes, communities, businesses and the overall economy. 'íle expect the role will take you at least tvvelve months
Can you start tomonow?
Background
A major government response to the impact of Tropical Cyclone Larry which crossed the Queensland coast near Innisfail in March 2006 was to appoint General Peter Cosgrove (Retired) to head the recovery program.
This appointment was critical in a number of ways. Cosgrove as a Major General in lggghadled the INTERFET forces into East Timor. In 2000 as Lieutenant General he was Chief of the Australian Army and from 2001 to 2005 as General he was Chief of Defence. In 2001 he had been acknowledged as Australian of the Year.
General Peter Cosgrove
His appointment to lead the Queensland Government Reconstruction Taskforce in 2006 followed a practice set with the appointment of Major General Alan Stretton to lead the reconstruction of Darwin following Tropical Cyclone Tracey in 1914.
The natural disasters across the summer of 2010 2011 posed many problems for the State of Queensland. The quick summary of the events is . Early December 2010 heavy rainfall and flooding in Emerald o Late December 2010 heavy rainfall and flooding in North Queensland o Christmas Day 2010 Tropical Cyclone Tasha crossed the coast and created the consequential flooding that occurred in the Central Highlands, North Burnett, and Capricornia. At the end of December 2010 the towns of Theodore and Condamine were fully evacuated. o On January 10 2011 flash flooding wreaked havoc on the Lockyer Valley (Grantham) and the City of Toowoomba. o Across mid January 20ll major flooding occurred throughout the South East in particular through Ipswich and Brisbane.
4 a At the end of January 2011 Tropical Cyclone Anthony crossed the Coast near Bowen and in early February 2011 Tropical Cyclone Yasi crossed the coast near Mission Beach. In the first three months following Tropical Cyclone Yasi the impact zone received up to 3M of rain. o Through February monsoonal flooding occurred on the east coast north of Townsville and across the Far North West. o Heavy flooding occurred in the Maranoa across April 201 1.
As the summer unfolded and the impacts of the natural disasters increased, the challenges expanded.
After Tropical CycloneLarcy in2006, five local authority areas in the State were impacted and subsequently were supported by the recovery model led by Cosgrove. In January 20ll it was not five town or local authority areas that needed reconstruction and recovery, it was the whole State.
To continue the role that senior officers from the Australian Army had played in leading recovery from natural disasters Major General Mick Slater Slater AO DSC CSC was appointed to lead the Flood Recovery Taskforce, As the summer of events unfolded and the magnitude of the challenges increased the Queensland Reconstruction Authority was established. Major General Slater's role changed to be Chair of the Board for the Queensland Reconstruction Authority. Graeme Newton was appointed as the Chief Executive Officer. In August of 2011 Slater returned to his military role and he was replaced by Major General Richard Wilson AO.
Major General Dick llilson AO Que e nsla nd Re con strucl i o n A uth or i Ð) CEO Graene Netvton and Major General Mick Slater AO DSC CSC
Impacts of 2010 and 2011 Cyclones in North Queensland
For people across North Queensland while Tropical Cyclone Tasha and Tropical Cyclone Anthony posed threats to the coast and caused some damage, the major cyclone threat and consequential impacts for the year were caused by Tropical Cyclone Yasi. At the time the Bureau of Meteorology publically stated that Tropical Cyclone Yasi was the largest tropical cyclone to impact on the coast in recorded history. As the cyclone crossed the coast the impacts were felt across 500km of the
5 coastline. The weather event was still categorised as a Tropical Cyclone as it impacted on Mount Isa some 1000 km's inland from the Coast.
Track ofTropical Cyclone Yasi February 201 1
In the aftermath of Tropical Cyclone Yasi Queensland Police Service officer Chief Superintendent Michael Keating APM Operations Coordinator of the
J rÈt Northern Police Region was appointed ¡ F' as the Director of the North Queensland Office of the Queensland Reconstruction -# Authority. The appointment was announced by Premier Anna Bligh and took affect on the 7th of February 2011.
The appointment was based on the officers many years of experience living and working in Innisfail and more broadly across North and Far North Queensland. He had worked in Innisfail on three previous occasions during his career, including in 2004 as the District Offrcer for the Innisfail Police District.
Chief Superintendent Michael Keating APM Queensland Police Semice 201 l
In March 2006 when Tropical Cyclone Larry crossed the Coast near Innisfail Chief Superintendent Keating had been the Operations Coordinator of the Far Northem Region based in Cairns. In that role he led the operational policing response to the impact and then over the following twelve months managed the Queensland Police Service response. He also had some engagement with the program led by Cosgrove as members of the Queensland Police Service were very actively involved in that work.
The political context
Individuals and communities immediately following disaster events have many expectations. Predominately those expectations are based on . their own personal previous experiences of support provided to them following a previous disaster event o their perception of what community assistance was available to another community following other disaster events o the advice given to them from a third party of what was previously available or what should be available on this occasion
For North Queensland following Tropical Cyclone Yasi all three of these expectations were present. Tropical Cyclone Yasi (2011) and Tropical Cyclone Lany (2006) crossed the coast in almost the same spot. The paths the Tropical Cyclones followed
6 after crossing the coast were very similar and consequently the severe and extreme damage was in the same area and to the property of the same people.
Many of the people impacted by Tropical Cyclone Yasi had experienced the government funded recovery programs put in place after Tropical Cyclone Lany. Consequently they advocated for the appointment not of a senior police officer within the Authority but for a stand alone Major General to lead the North Queensland Íecovery independent of what was often described as the flood recovery. The Federal Member for Kennedy was a very strong advocate against the Reconstruction Authority model. His electorate includes the area severely impacted by both the 2006 Tropical Cyclone Lany and2}Il Tropical Cyclone Yasi events
Bob Kaller Memberfor Kennedy
Some local people compared the recovery models often highlighting the apparent inadequacy of the post Tropical Cyclone Yasi model compared to the post Tropical Cyclone Lany model. This was an interesting point politically as the models put in place post Tropical Cyclone Yasi were structurally the same as the post Tropical Cyclone Larry models. There were, however, differences between the two in terms of policy.
Some strove to highlight differences for political purposes without acknowledging the fundamental similarities of the programs and the generosity within the programs. By way of an example some strove to highlight a difference in government support available to small business. Post Tropical Cyclone Lany if a person had an Australian Business Number (ABN) number for any number of businesses they could claim a compensation package of up to a total of $25 000, which included an up front $5000 cash grant, for loss or damage for each of those business. Post Tropical Cyclone Yasi the same package of $25 000 was available with the provision that the business owner needed to establish damage was caused to each individual business.
Another example was funds available to eligible businesses to maintain staff by way of wage supplementation. Following Tropical Cyclone Lany the program was offered initially for 13 weeks and then subsequently extended for a second 13 weeks. Following Tropical Cyclone Yasi the program was again offered for 13 weeks and some strove to highlight that this was not as generous as post Tropical Cyclone Lany as it was only for half the time. Even though the post Tropical Cyclone Yasi program was later extended for a second l3 weeks as had been the case after Tropical Cyclone Larcy some held the view this had not been as generous.
Generally, those who advocated that the systems of the post Tropical Cyclone Yasr had not been as effective or as generous did so based on what a third party had told them. It is in this context that an evaluation of the political climate is informative.
7 Co m m o nwealth govern me nt
The electorate of Kennedy covers the area impacted by both Tropical Cyclones Larry and Yasi. Geographically, the electorate is rural, comprising the Pacific coast of Queensland between Cairns and Townsville, but including neither city, and then a large, increasingly sparsely populated area stretching west to the border with the Northern Tenitory.
,' Mop Queensland vith Eleclorate oJ Kennedy highlighted in yellotu The local member has an ofhce in Innisfail and resides in Charter Towers. The representative is very popular in the electorate and holds the seat as an Independent. At the time Tropical Cyclone Yasi impacted on the Coast the local member was one of the independent members who held the balance of power in the Federal Parliament. At the time of Tropical Cyclone Larry he did not hold such levels of influence. 8,'i+*r It should be noted that in 201I after Tropical Cyclone Yasi he created Katters Australia Party. The cyclone was not the impetus for the creation of the Party. The Party contested a number of seats in the 2012 Queensland State Election including the Seat of Hinchinbrook and while successful in two other seats was not successful in Hinchinbrook.
The Federal Member was publically a critic of the Queensland Reconstruction Authority model, and its business practices. The Federal member held a very high media profile with the media regularly reporting his views and claims. It should also be said that for many residents of the impact zone, the public views of the Federal member were accepted. So in terms of public appreciation and perceptions of the business models of the Queensland Reconstruction Authority, some made their judgments on the Federal Members reference not their own personal knowledge and experiences.
Sfaúe government
Hinchinbrook is an electoral district of the State of Queensland. The electorate is a narrow coastal strip running from just south of Innisfail to just north of Townsville, though neither town is part of the electorate. Hinchinbrook does include the towns of Ingham, Cardwell, Mission Beach, Tully, El Arish, Silkwood and Kurrimine Beach.
At the time of both Tropical Cyclones Larry and Tropical Cyclone Yasi the local member was a Liberal National Party member and at the time the Australian Labor Party was in government. The incumbent representative at the time of both Cyclones, even though it was a different person for each event, lived in Ingham.
8 Map of Queensland with Electorate of Hinchinbrook highlighted in green
Electorate of Hinchinbrook
The elected representative while locally popular operated outside of the govemment while trying to seek assistance for the constituents.
Local government
The severe impact of Tropical Cyclone Larry in2006 was in the then Johnstone Shire Council area. Serious damage was also felt in the then Cardwell Shire Council area. The damage also extended into the local authority areas on the Atherton Tablelands including the then Eacham Atherton and Mareeba Shires.
The severest of the impacts from Tropical Cyclone Yasi were felt between Innisfail to Ingham. The worst of the damage was between Cowley Beach and Cardwell. Importantly, in the period between the two cyclones of 2006 and 2011, the Queensland Government had forced the amalgamation of many Shires and Councils (local governments) in Queensland.
The worst of the impact from Tropical Cyclone Yasi was in the new Cassowary Coast Regional Council area. This Council was the amalgamated Council formed when the former Johnstone Shire (based on Innisfail) and Cardwell Shire (based on Tully) were combined. For many years there had been a sense of 'big brother little brother' between the Innisfail and Tully communities and the amalgamation processes had not welded the communities together even though the amalgamated Council had offices and facilities in Innisfail and in Tully.
Map ofCassowary Coasl Regional Council
The people of Cardwell and Mission Beach were not previously closely linked to Tully and the amalgamation process had, for some, given them a greater sense of distance from decision makers.
9 A further complication was that the Council elected by the residents of the Johnstone Shire Council prior to Tropical Cyclone Larry had subsequently been dismissed by the State government for poor performance.
In summary, in the areas with the greatest impacts from Tropical Cyclone Yasi, different disaster management arrangements existed in 2011 than had existed in 2006 for Tropical Cyclone Larry. The amalgamations had not been universally accepted or adopted and there was a degree of resistance and hostility to the disaster management models that applied for Tropical Cyclone Yasi.
On the Atherton Tablelands five former local authorities had been combined to form the new Tablelands Shire Council, with offices in Mareeba and Atherton. The sense of dislocation within this local authority area was not as extreme nor \¡/as the damage, therefore the complexities were not as challenging.
The above summaries are not meant to question or devalue the intent or capacity of the Councillors or Staff of the local authorities that existed. Rather the summary is intended to inform the reader of the environment in which recovery and reconstruction had to take place. Highlighting, that even though two major natural disaster events occurred so close together the fundamental systems to support the community were different and in part gave critics a starting point to question models and practices. Authority to act
General Cosgrove was a highly public figure in Australia prior to his appointment to the Cyclone Larry Recovery Taskforce in 2006. His role, however, was not supported by any legislative framework. His great work through 2006 and2007, which has been widely acknowledged, was based on his obvious capacity to lead. Further his extraordinary communications skills allowed him to quickly be seen as a man working for the community right across the cyclone impact zone.
Major General Mick Slater and Chief Superintendent Michael Keating in Tully February 201I
The Slater Flood Recovery Taskforce similarly had the benefit of an easily identifiable man, a natural leader with extraordinary communication skills and empathy, The difference was scale; while the Cosgrove challenge \¡r'as enormous it seemed in the beginning of February 2011 the Slater challenges would never stop growing. The government had to act decisively and did so with the legislative provisions of the Queensland Reconstruction Authority Act of 201 I which was assented to on the 21't of February 20IL
The purpose of the Act was to provide appropriate measures to ensure Queensland and its communities effectively and efficiently recover from the impacts of disaster
10 events. Anna Bligh, Premier of the State, appointed herself as the Minster for Reconstruction.
The Authority was based in Brisbane with the office for North Queensland in Innisfail. The Authority's purpose was to coordinate and manage the rebuilding and recovery of affected communities, including the repair and rebuilding of community infrastructure and other property.
The Authority was required to
. Decide priorities for community infrastructure and community services needed for the protection, rebuilding and recovery of affected communities o Coordinate and distribute financial assistance for affected communities o Be responsible for the collection of relevant information by working closely with affected communities, collecting and collating information about affected community infrastructure, other property and community services and developing an arrangement for sharing data across all levels of government to ensure effective and efficient exchange of information, and . Facilitate flood mitigation for affected communities and ensure that the protection, rebuilding and recovery of affected communities were effectively and efficiently carried out and appropriate. ,--' The legislation provided the Chief Executive Offrcer and the Minister with powers and allowed the r Authority to enter into contracts, acquire and dispose of property, and Reconstru engage consultants and do anything Queensl else necessary or convenient to be Au done in the performance of its functions. Under the Act the Authority had three broad categories of powers;
1. Power to intervene and fast track approval processes for affected communities 2. Independent planning powers to prepare development schemes and require local governments to amend planning instruments, and 3. Power to undertake reconstruction or development works itself.
Importantly the powers, as stated previously, were vested in the Chief Executive Officer and the Minister. There was no provision for the power to be delegated to subordinates.
V/hile the legislative provision were absolutely necessary for the reconstruction task there application on a day to basis on the ground, particularly in North Queensland was not immediately relevant.
ll National Disaster Relief and Recovery Arrangements
The Natural Disaster Relief and Recovery Arrangements (NDRRA) model is complex and detailed. To allow the model to operate the Commonwealth has policy documents as do States. For Queensland, like in all States of the Commonwealth NDRRA, is a joint State Government and Commonwealth Government program that provides a number of relief measures to deliver financial assistance to impacted communities following natural disaster events.
Major General Wilson
Agencies of government at both levels have worked through the processes for many years to deliver assistance programs as may be required. Within the arrangements, local authorities have pre- determined financial trigger points for initiating the obligations of the two other levels of government.
Some Local Authorities described the system as an insurance policy as when the arrangements are activated the Local Authority has to reach a predetermined financial trigger point (effectively a premium) and then the costs are covered by the State and Commonwealth Governments under the cost sharing processes.
The Restoration of Essential Public Assets (REPA) relief measure, under the NDRRA funding program helps local authorities restore essential local infrastructure in the wake of a natural disaster. The NDRRA's REPA relief measure's primary aim is to return public assets to their pre-disaster standard as quickly as possible, so that people in affected areas can get on with rebuilding their lives.
Bruce Highway Cardwell an example of critical infrastructure needing to be repaired under the NDRRA following Tropical Cyclone Yasi
Importantly all local authorities and state government agencies have a long history in the application of the policy and practices. Similarly many members of the local communities who had experiences post Tropical Cyclone Larry believed the same practices would be applied in the response and recovery models being applied to Tropical Cyclone Yasi consequences.
The support available to the impacted communities following Tropical Cyclone Yasi was the same model as after Tropical Cyclone Larry. This involved the State and Commonwealth governments applying the pre-existing agreed formula in line with the policy documents.
12 Levels of overview
During 201I, owing to the scale of the disaster scenario that Queensland faced and the consequential costs to both the State and Commonwealth Government some additional overview functions were established to ensure probity, A Commonwealth Inspectorate was established to work with the Authority and overview the reconstruction program. This body later was empowered to work with the Victorian Government to deliver the same outcomes following a series of flooding events in Vitoria in early 2011. Across the Inspectorate and Authority business models there was the fundamental commitment to drive value for money while delivering reconstruction.
Additionally the Audit Offrces at both State and Commonwealth levels were duty bound to complete their roles with regard to the expenditure being managed by the Authority.
In summary, while in2011 Queensland faced the largest series of disaster events in its history, it also had new mechanisms to facilitate rebuilding with the highest levels of probity on expenditure. V/hile the needs for these measures were unquestionable their application was not always fully understood or appreciated by individuals, businesses or industry. In many cases the need to meet the required standards were blamed for delays and slowness by those needing to seek the support of the Authority to complete work.
Damage Assessmenfs
The initial assessment of damage caused by Tropical Cyclone Yasi indicated that the overall cost of the event was going to be very high. As each day passed and as each arm of government, industry and community became more aware of the damage, it was evident the cost for the event was to be measured in the billions of dollars
Port Hinchinbrook Cardwell 201I
Damage had been caused to privately owned property, public property including major and essential infrastructure. There was severe damage to the businesses with the agriculture sector and the tourism industry. The economic impact was very serious as these sectors are the employers in the geographic zones with the worst impacts.
Expectations were high. While as has been described there was not unanimous support for the Authority and its business models and practices Government at all levels, Community and Industry were looking for assistance, advocacy, solutions and outcomes.
13 Queensland Reconstruction Aothor¡ty
I
to
of
ns I a n d Govern m e n t I N\Qùee application assessment and funding of the NDRRA model had in many situations placed a cost on impacted Local Authority's before remittances of funds from State and Commonwealth levels. The Authority with the support of Emergency Management Australia and the State and Commonwealth Treasuries took an innovative approach. In brief, based on estimates of damage and commitments from impacted Local Authority's on how funds would be managed and audited, the innovation was that the Authority provided upfront funding. While some Local Authority's were more committed to this model than others, the process did provide an opportunity to commence works prior to the formal evaluations of applications being completed.
The leadership role
During 2010 the State Government had reviewed and amended the State Disaster Management Act 2003 . The changes which took effect in November 2010 gave more responsibility and therefore accountability the Queensland Police Service.
As the events of the summer unfolded political leadership was delivered by the Premier, the Cabinet and the Government. In part this was formalised when Queensland Police Service Deputy Commissioner Stewart was appointed to the role of State Disaster Coordinator in accordance with Section2lB of fhe State Disaster Management Act 2003. As the nature of the impacts caused by the series of disaster events become fully understood, the role of State Recovery Coordinator as defined in Section 2l D, was not applied. As has been outlined previously the State government moved to Flood Recovery Taskforce and later Reconstruction Authority models headed by Major General Slater.
Chief Superintendent Keating was appointed to head the North Queensland Offrce of the Queensland Reconstruction Authority. The Chief Superintendent had met Major General Slater when Slater had previously been based in Townsville as a Senior Australian Army officer. The contact had been very brief and informal. Similarly Keating had met Premier Bligh on a small number of occasions over previous years when he had been present at official government functions and events. Keating had
14 not previously met Graeme Newton the Chief Executive Off,rcer of the Queensland Reconstruction Authority.
The scenario
On the 7th of February 2011 Chief Superintendent Keating commenced a role that was not supported by legislative provisions. He was asked to establish an ofhce and lead the reconstruction efforts in an area damaged by a major disaster event for an Authority that at the time had not been empowered by the Parliament. He reported to a leadership team that was evolving and with whom he had no previous formal engagement. The work took him to an area in which he had significant personal experience. He would need to work with, amongst others o Individuals o Communities o Advocacy groups o Local Authorities o Agencies engaged in the response to the disaster o State and Commonwealth government bodies and departments o Insurance Companies and the Insurance Council of Australia o Buildingindustryrepresentatives o Local, State and National media . Politicians across the three levels of government, and . Industry bodies in the agri-political sector.
A small team
The first task, having accepted the role, was for the Chief Superintendent to convlnce others to join him. The Chief Superintendent approached people he had previously worked with and in whom he had confidence and trust. He negotiated with them individually to become involved and then with their supervisors to have them released from their home agencies. As a consequence two additional staff from the Queensland Police Service, one officer from the Department of Communities, one officer from Emergency Management Queensland and one officer from the Department of Corrections were released through officer interchange arrangements to work for the Queensland Reconstruction Authority.
The interchange process allowed for people to be released from one Agency to another. It provided people with certainty and conditions of employment. The officer interchange arrangements also provided a seamless and expedient mechanism to have people working on challenges immediately. As there was no recruitment and selection process there were no delays. These people had local knowledge, were know locally and most importantly had networks and contact back into their home agencies to receive advice and assistance. They were all known to each other and some had previously worked in the Cosgrove Taskforce post Tropical Cyclone Lany. While the assessment of their competency was essentially based on the previous experiences of the Chief Superintendent there was also the endorsement and reference provided in the negotiation with supervisors to facilitate their release.
15 They were small in number, professionally competent, and highly regarded by their peers. They were all known to be committed individuals who were driven by the need to get the job done. There is no doubt that the fundamental contributor to the success of the North Queensland office was the performance of; o Adam Garnett Department of Communities . Kerry Grady Department of Corrections . Wayne Hepple Emergency Management Queensland . Senior Sergeant Mark Whitnall Queensland Police Service and o Inspector Russell Rhodes Queensland Police Service
As the year progtessed the team reduced in size. Professional opportunities took some of the staff back to home agencies. Fortuitously the timing of the release coincided with opportunities through the year so while their release was diffrcult it could be accommodated. Importantly replacements were not sought as this was part of the transition arrangements for the North Queensland Offrce to be seen to be scaling back and dissolving. The team always knew there would be an end date and that while as much work as possible was to be completed the processes were needed to hand tasks to responsible agencies.
Facilities
When Tropical Cyclone Yasi struck the coast the Queensland Reconstruction Authority was not a functioning agency. Consequently there was no footprint in North Queensland. Innisfail while the centre for local government is not a large town. The Local Authority serves a community of around 33000 people and Innisfail is the largest town with a population of around 10 000. Many people in Tully and Cardwell were demanding the reconstruction effort be based in those communities. The Federal member was public in his calls for this to be so. The decision was made that the effort needed to be based in Innisfail. It was the centre for local government as well as the centre for industry and economic drivers.
While the staff number was low there was a need to find suitable premises. The team using their local contacts secured an open plan conference room which did have some inbuilt technical capacity. The facility was secured for twelve months and additional furnishings were purchased and the office set up. Additional technical capacity was put in place and the North Queensland office worked within the overall Authority business models.
Mobility
Owing to the size of the areafo be covered and the need for staff to be on the road everyday, arrangements were made for four vehicles among the five staff. Mobility would prove to be the key to achieving goals as in the twelve month period these four vehicles travelled approximately 300 000klm across North Queensland.
t6 Gommunity engagement
The easier parts were resolved. The Chief Superintendent knew who he had to work with. The part that seemed insurmountable was how? The Chief Superintendent's appointment had been announced by the Premier in a media conference. Expectations were raised and commitments given.
Premier of Queensland Anna Bligh (nursing child) talking with Recovery worker and community members
Within hours the Chief Superintendent was on the ground in the worst of the affected communities. Over the first 48 hours the Chief Superintendent worked closely with the Queensland Police Service Regional Executive to build upon the outstanding work that was being done to brief the community on what had occurred and what was to follow. Chief Superintendent Paul Taylor of the Far Northern Region was facilitating public meetings across communities from Cardwell to Silkwood. These were extraordinarily successful in bringing the communities together and providing face to face briefings. It was through these series of meetings that Chief Superintendent Keating was able to develop his own situational awareness. He was able to meet with and talk to local community leaders and business people. He was able to visit individual's homes and businesses, recovery and evacuation centers.
In an area with such vast amounts of devastation it was difficult to find the action that would signal work had commenced. Each community, business, industry and individual was looking for that action which changed their personal situation. This was a lesson from the Cosgrove strategy of actively listening to and talking with community and individuals across impacts by Tropical Cyclone Larry in2006.
The complex weather events that unfolded immediately after the crossing of Tropical Cyclone Yasi were important. A series of flooding events in Ingham, Cardwell and Tully Heads put the team to the front in terms of the community, business and government. These events compounded the problems already existing and provided the opportunity for Chief Superintendent Keating and his team to engage personally with the individuals and the communities. They provided opportunities for the media to speak with and question the Chief Superintendent on the circumstances as they existed and the plans and strategies for the future. Chief Superintendent Keating and the Authority were seen to be the Agency to turn to for a solution.
For Chief Superintendent Keating and his team, no meeting or event was unimportant or too small. They travelled long distances to be involved in local rneetings, with committees and groups, to hear concerns, to note difficulties and to explain actions and plans for the future. It was more than being seen; it was developing situational awareness, identifying gaps, and in many circumstances taking the opportunity to provide factual information to people who were misinformed.
T7 Implied authority
As has been described earlier, in the beginning Chief Superintendent Keating and his team had no legislated power or authority. The Chief Superintendent like Major General Slater and later Major General V/ilson had been chosen to some degree based on their backgrounds. It was their backgrounds that gave them profile and legitimacy in the eyes of the community.
All three used the uniform of their home agency to highlight who they were and to enhance their presence in the community. This was particularly useful in the media roles but also in developing an identity with the communities. It is not the case that officers of such high ranks are in these communities all day every day. No matter what or where the event or meeting was, Chief Superintendent Keating wore the Queensland Police Service uniform. Owing to the uniforms and the ranks Slater, 'Wilson and Keating stood out wherever they were. The uniforms implied authority and gave the officers introduction and legitimacy. The other members of the team wore the corporate uniform of the Queensland Reconstruction Authority.
Different rel ati o nshþs
Police officers have an almost unique relationship to political leaders. The Separation of Powers is essential for good government and due process. In his police role Chief Superintendent Keating like all senior off,rcers has and had authority to comment on police operational matters. In the previous decade he had done so on a range of national and local policing issues for matters within his area of interest and control.
As needed he would work with elected representatives at State and Local levels on policing issues, Keating like all senior police was always mindful of the need for separation and distance. He had always held a courteous and professional relationship to elected offrcials at all three levels of Government. It was uncommon for Chief Superintendent Keating to speak with Ministers and only ever did so in the presences of or with the knowledge of the Commissioner of Police.
The new role changed the relationships and the requirements for public links to elected officials and commentary. During the time he undertook the role with the Queensland Reconstruction Authority Chief Superintendent Keating was one of only four people in the State who made public comment on the reconstruction program. He worked personally and closely with elected representatives of local government as well as Council off,rcers.
Chief Superintendent Keating briefing Acting Prime Minister Wayne Swan April 201 I
He met with and personally briefed elected representatives at State and Federal level. He met with and worked closely with the offrce staff of the elected representatives to answer questions and explain strategy.
18 A fundamental difference to his normal policing role was the immediate and direct contact Chief Superintendent Keating had across and with Government. He would meet with and personally brief Directors General of Government Departments. This was very different to his role in the Queensland Police. The new role put him in direct contact with Ministers of both the State and Federal Governments. As necessary the Chief Superintendent was in direct contact with a Director General, their senior staff or the staff of a Minister. These briefings and discussions extended to the highest levels including at the Federal level with the Prime Minster, the Deputy Prime Minister and Treasurer, and the Minister Assisting the Attorney-General on Queensland Flood Recovery.
At a State level there were briefings and support of the Premier and Minster for Reconstruction, the Deputy Premier and Treasurer, and almost all other Minsters across the State Government as they visited the devastation area throughout the year
Of course Chief Superintendent Keating did not act in isolation for these meetings. He continued to brief and work closely with the Chair of the Board, the Chief Executive Officer and General Managers within the Reconstruction Authority on all meetings and contacts. Chief Superintendent Keating also maintained a limited contact with the offices of the Commissioner of Police and the Deputy Commissioner (Regional Operations).
Relationship as a means of leadership - Interagency
Chief Superintendent Keating and his team were not acting unilaterally. As has been described previously the processes to be applied, in the main, were the application of the National Disaster Relief and Recovery Arrangements Q.üDRRA). The Queensland Reconstruction Authority was the agency to administer and facilitate the arrangements To do so required all Agencies that were delivering a recovery or reconstuuction program to act cohesively.
Quñ¡rlrnd Ra.õ..1.ü.tlon Àuthoriry Early in2}ll the Authority developed and released the State Community Economic and Environmental - 2013. Operation Queenslander Recovery and Reconstruction Plan 2011 This lhc St¿tL'Conìmun¡ty, plan directed all levels of government and the Erononìic dncl Invironrnental Rcrovcry ind Rcconslruction Plan zorr u or3 community on a preformatted pathway. All Local Authority's across the State were required to implement a local Recovery Committee and Plans. Staff of the Innisfail office of the Authority worked with Local Authority's to finalise and implement the Plans as the requirements applied to those Local Authorities impacted by Tropical Cyclone Yasi.
To further this approach Chief Superintendent Keating applied one of General Cosgrove strategies and implemented a localised interagency group. The group included representatives ofover a dozen State and Federal Departments as well as representatives of statutory bodies and Local Authority's.
T9 Each of the agencies represented maintained ownership and responsibility for their own works in accordance with the National Disaster Relief and Recovery Arrangements. The interagency group process ensured that each agency knew what the other agencies were doing, impofiantly identifuing where overlap was or may occur. Importantly there was the opportunity to find where an impediment to work may be caused by the requirements of another agency and to allow when possible for a localised solution to be developed and applied.
Initially the interagency group met fortnightly. From July 2011 the group met monthly. Agencies were represented by either their Regional Director or a suitably senior staff member to represent the Regional Director. Each representative was requested to provide a written report prior to the meeting and all reports were shared with all participants.
Ìnleragency meeling in conJerence room of North Queensland Ofice Queensland Reconslruclion Aulhority 20 I I
Chief Superintendent Keating was the only person empowered to speak to the media. While all participants remained mindful of the requirements of their home agency, discretion was also applied to ensure effectiveness and efhciency in providing a coordinated response to the community. By way of example matters \ryere on occasions brought to the meeting for discussion across agencies which in normal business would not be so readily supplied. Additionally representatives did so knowing that Chief Superintendent Keating may later make a public comment on the information despite there being no normal vetting or clearing of the information from a departmental point of view. While this action did have risks it worked seamlessly and cooperatively across the whole year.
Gommun¡ty recovery
With the disaster situations faced in Queensland in 2010 and 2011 the evidence was clear that some people and communities are able to recover and respond quicker than others.
Practitioners talked of learned helplessness. A situation where a person impacted by the event simply believed they were helpless because they have previously experienced that situation and not coped. They had been told by others the situation is and will remain helpless until others resolve it. Others took a contrary view. They had an experience from which they had learnt and they had developed and applied both their own and the solutions that others have made available to them. As a consequence ofthe experience they had taken steps to ensure they coped. They became resilient through experiences and forethought.
20 The levels of confidence that people had about the future were dependent on thetr own personal experiences with disaster events. Many parts of the State that experienced the impacts of disaster events had no recent experiences upon which to rely.
Situational Awareness
In any leadership role it is imperative that the leader and the leadership agency have an ongoing situational awareness. In the reconstruction task, the awareness needs to be at a range of levels focusing on community recovery o What has occurred? o What was the impact? o What was the initial response? o What is the current response? o What do people believe has been missed? . Where are the acute issues now? o What are the critical issues into the future? o Can more be done to address both the acute issues and critical issues? 'What o has been done that has not been understood?
It is very easy to believe that the processes used to engage with people have been effective. It is very common for people to be unaware of what systems and mechanisms are in place to support them individually, their business or their industry It is essential that formal and informal methods are developed to find the answers to the listed questions. It is even more important to ensure that when a gap is identified that it is addressed and resolved.
It was about the people
Process and methodology are the fundamentals of government and bureaucracy. Efficiency and effectiveness are measured by evaluating the inputs the outputs and outcomes. Immediately, following a disaster event their can be a disconnect between the need for bureaucratic processes and requirements and the expectations of individuals and communities. Politically elected representatives explore the means by which expectation can be addressed. Accountability and probity requires the bureaucrats to ensure due process and good governance are applied. Leadership in this context is about ensuring that neither is compromised while both are satisfied.
No matter what the experience or how recent the experience it was important that the models and systems applied took cognisance of one fundamental truth, it was about the people. Individuals and communities immediately following the disaster event had many expectations. Predominately those expectations were based on o their own personal previous experiences of support provided to them following a previous disaster event o their perception of what community assistance was available to another community following other disaster events
21 a the advice given to them from a third party of what was previously available or what should be available on this occasion
Prince William, Chief Superintendent Michael Keating, Peter Cochran of Cassowary Coast Regional Council and Queensland Prenrier Anna Bligh in Tully discussing the impacts during the Princes visits to Australia and New Zealand in 201 I
As the summer of disaster unfolded across 2010 and 2011 Premier Bligh launched the Premiers Relief Appeal. People across Australia and governments across the world demonstrated outstanding generosity and empathy for the Queensland community. Hundreds of millions of dollars was raised and distributed to those in need. Through the NDRRA arrangements and other government support hundreds of million of dollars was made available for welfare and community assistance.
While able to access money and support many people felt isolated and alone. Small communities felt neglected and unsupported. The implementation of community recovery worker and programs facilitated through local authorities or local community groups were an extraordinarily effective mechanism to reach out to people and communities. People found others who shared their experiences and discovered outreach workers and agencies they could work with to improve their situation.
One on one assistance and support was necessary for some individuals and families. For some communities assistance to ensure the regional annual community events continued was equally as important. Events such as the annual Agricultural Show, or the town's festivals were often the most effective ways to see people and meet with people. They gave local communities the opportunity to meet with each other to share experiences and to see that progress was being made on the challenges faced.
The Queensland Reconstruction Authority was able to develop and support models that focused on people, industry and community. The Authority through the agencies of Government focused on processes and models in two parts. The first was to address Community Recovery and the second was to improve community and individual resilience.
Learn from the past look to the future
Leadership needs to be provided in non-disaster times to ensure capability exists during disaster events. Emergency Management Queensland (EMQ) has for many years worked with Local and State government departments and with the community
22 to ensure alertness to risk with regard to cyclonic events. The Bureau of Meteorology provides an outstanding and enviable level of forecasting and awareness for the events as they develop.
Cyclone events in North Queensland are common during the summer. Typically around 5 cyclones will form and threaten the Coast. Not all will cross the coast and those that do range in category from 1 to 5.
Homes and buildings in Tully constructed before the amended Building Codes took effect. Replacement buildings have been constructed to the new standards.
Over many years research facilities, particularly the James Cook University in Townsville, and the building industry have worked collaboratively with Government at all levels to develop building codes that engender greater confidence that buildings will remain secure and withstand a cyclonic event. These same homes and buildings are also capable of providing shelter to occupants during cyclonic events.
The Queensland Reconstruction Authority through the processes and mechanisms available within NDRRA was able to work with local govemment and state government agencies to ensure critical infrastructure is more resilient. While this has always been a feature of the NDRRA processes it was accentuated following the scale of disasters of the 2010 2011 summer.
Resilience ¡s the answer
Critical incident leadership will always be necessary following a disaster event or events. Strategic leadership lrrlrattl¡rq ¡',\r"Áq'r ' . I'r¡¡'r'r",,\\rñl r!\"' r\r ¡rw will lessen the impacts of disaster and the costs of ( disaster. The outcomes from Strategic leadership can .t, lessen learned helplessness. the processes of strategic t l' If leadership focus on developing resilience then there will be a reduction in the impacts of the disaster on individuals and property and to the overall cost to the disaster event.
The Authority had been able, through collaborative work, to improve resilience in a wide range of areas and across a series of disciplines. In some cases standards have been
23 set and published in others existing models have bettered and improved. Examples, on a whole of State level, include but were not limited to o Interactive Flood Mapping o Grantham Reconstruction Area o Resilience Planning - rebuilding guidelines o Electrical infrastructure o Wind resistant housing o Storm tides o Rapid Damage Assessment Program
One year on - closing the North Queensland office
In February 20ll it was only possible to forecast the extent of the impact. It seemed that every home owner needed assistance, ever employer needed assistance, every industry was under financial pressure, and every economic driver within the local communities was damaged. It appeared many jobs would be lost and people would be forced to leave the local areas. Those with the least levels of personal and financial resilience had suffered major hardships.
The North Queensland Office of the Queensland Reconstruction Authority closed one year to the day after the crossing of Tropical Cyclone Yasi. Repair and reconstruction figures as at 1 December 2011 (presented below) are reflective of the devastation that resulted from Tropical Cyclone Yasi. The figures demonstrate what was faced and what was achieved in the twelve month period. They do not include the additional hundreds of millions of dollars committed since 1 December 20ll to finalise other NDRRA requests.
Butler Street Tully February 201 I
a $1.3 Billion estimated cost to the Insurance industry a 72 000 insurance claims of which 41 687 were for damage to houses and residential properties $500M forecast of NDRRA tunding to Local Authority's to repair critical infrastructure . $9.7M paid under Personals Hardship and Assistance Schemes o $138 000 paid under Essential Service and Safety Reconnection o $15M paid under Queensland Local Council Package . $63M paid to small business, primary producer, charities and non-profit groups
24 . $69.5M paid under Disaster Income Recovery subsidy . $300M paid under the Australian Government Disaster Relief payments . $21.9M paid under Cyclone Yasi Wage Assistance o $7.5M paid under Queensland Natural Disaster Jobs and Skills package . $1M paid under Sport Flood Fight back scheme
Since February 201 I there have ongoing disaster events across the State of Queensland. The Queensland Reconstruction Authority tenure has been extended by State Government to manage the need and to finalise the works required.
Gonclus¡on
Disaster events, both natural and man made will continue to occur. The four themed disaster management model of Planning, Preparedness, Response and Recovery has served Queensland Australia and other parts of the world well for many years. No two events will be the same and as has been explained and no two systems of response will be identical. An ongoing commitment of all involved in disaster management to the four themes will continue the highly developed practices applied in Queensland when challenges have occurred.
Natural Disaster Relief and Recovery Arrangements in Australia are generous and comprehensive. It has been demonstrated, not only in response to the events reported in this paper but in many other events, that the model supports individuals, industry and community at the most difhcult of times. Government at all levels, the business sectors, communities and individuals must commit to resilience strategies. Effective and strong leadership is essential not only in times of response but strategically. The willingness of the decision makers to assess the situation and apply innovative solutions has proven effective and should always be considered.
Anna Bligh Premier of Queensland and Minster for Reconstruction
Queenslanders should be proud of the achievements of agencies Queensland in responding to the challenges Reconstrurr¡ faced after the summer of 2010 -2011. Self praise is worth Authoritr little; however when the 2011 World Bank formally (ni committed that the process applied in Queensland were evidence of world best practice that must be acknowledged. The commitment of the individuals who made up the Queensland Reconstruction Authority, partnered with the work and commitment of government at three levels, the business sector, community and governments is the key.
Disaster recovery is about people, both individually and collectively. When a challenge comes leadership is an essential element to the response. Leaders who are
25 easily identifiable, credible and committed when partnered with a political will can address the challenges.
Thankyou There are many individuals and aspects within the reconstruction and recovery program that deserve their own report. The fact they are not mentioned in this review does not diminish their importance or worth. Many agencies and business sectors have and should continue to conduct their own reviews to acknowledge what was done.
No commentary on the work undertaken by the North Queensland Offrce of the Queensland Reconstruction Authority can be completed without an expression of thanks. Chief Superintendent Keating at the final interagency meeting held in Innisfail on I February 201 2 to mark the closure of the North Queensland Office and the anniversary of the Cyclone event extended his thanks to the Queensland Police Service, especially Commissioner Bob Atkinson and then Deputy Commissioner lan Stewart, Recognition was paid to all from the Queensland Reconstruction Authority Brisbane ffice, especially the two Major Generals Mick Slater and Dick Wilson and CEO Graeme Newton.
Acknowledgment was also paid to the staff of the local authorities in Ingham, Innisfail and Atherton, most particularly Mayor Bill Shannon and CEO Teruy Brennan of the Cassowary Coat Regional Council. There was also an acknowledgment of the media, State and Commonwealth government employees as well as private sector people and agencies thqt made immeasurable contributions to the tasks.
A final vote of thanks was extended to the QRA's North Queensland Office colleagues (Kerry, Mark, Adam, Wayne and Russell) and also most importantly to the people of Far North Queenslandfor their patience, resilience and support - he concluded "we built it back better ".
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