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Executive summaryGlobally, losses from natural and human caused hazardsare increasing. The factors affecting this impact arevaried and complex and include: increasing population improved standards of living and a rapidly growingmiddle class increasing concentration of people and assets inurban areas settlement and industrialisation of vulnerable areas(such as coastal zones and flood plains) increased complexity and interdependencies insupply chains, and intensification and accumulation of extreme weatherevents.Australia is not immune from these factors. These trendsmay increase the vulnerability to, and the impacts of,emergencies and disasters.To help prepare for a future that is complexand uncertain, the Australian EmergencyManagement Arrangements Handbook(AIDR 2019) has been prepared to articulatethe national arrangements for emergencymanagement within Australia and its states andterritories.The handbook establishes a set of principles that areintended to underpin and guide emergency managementactivities.It also describes the emergency management rolesand responsibilities of all levels of government,non-government organisations (NGOs), businesses,communities and individuals.Arrangements and responsibilities for the comprehensiveapproach to emergency management - prevention,preparedness, response and recovery (PPRR) arediscussed.These arrangements support emergency managementin Australia through the concepts of an 'all hazards'approach and 'shared responsibility'.viPurpose of the AustralianEmergency ManagementArrangementsThe Australian Emergency Management Arrangements(the Arrangements) are intended to guide Australiangovernments, non-government organisations,emergency management organisations, agencies,and communities in establishing their emergencymanagement arrangements. They articulate theprinciples, structures and procedures that supportnational coordination of emergency management.The purpose of the Arrangements is to provide a highlevel, scalable overview of how Australia addresses therisks and impacts of hazards through a collaborativeapproach to the prevention of, preparedness for,response to and recovery from emergencies.The principles and structures herein also supportAustralians affected by emergencies overseas and allowthe Australian government to assist (if requested by)foreign governments affected by emergencies and forassistance to be received from foreign governments.The Arrangements outline the collaboration necessary toaddress the nature and scale of different emergencies.This handbook is intended to: be the authoritative and trusted source of knowledgeof the emergency management arrangements inAustralia provide nationally agreed principles that underpinemergency management arrangements in Australia identify and promote the adoption of good practice inemergency management arrangements build interoperability between jurisdictions, agencies,businesses, communities and individuals by theapplication of the principles and common language,and align national disaster resilience strategies,frameworks and policy with emergency managementarrangements by informing and assisting jurisdictions,agencies, businesses, communities and individualsin the implementation and adoption of thesearrangements.Australian Emergency Management Arrangements Handbook

The purpose of the handbook is not to specifythe management of an emergency in responseto a specific event or disaster. However, theunderpinning principles provide a context forguiding the approach to these situations.Emergencies can and do happen on a daily basis. In somecases the size, scale, impact, complexity or consequenceof an emergency is such that the emergency isconsidered a disaster.ContextDisaster: A serious disruption of the functioning of acommunity or a society at any scale due to hazardousevents interacting with conditions of exposure,vulnerability and capacity, leading to one or more of thefollowing: human, material, economic or environmentallosses and impacts (Australian Government Departmentof Home Affairs 2018).This handbook is one of the Australian National DisasterResilience Handbook Collection.There is jurisdictional variation in the use of the terms'emergency' and 'disaster'.This handbook is intended to complement otherhandbooks in the collection. Community Recovery(AIDR 2018) is an important reference that supportsthis handbook.Catastrophic disaster: Is what is beyond our currentarrangements, thinking, experience and imagination(i.e. that has overwhelmed our technical, non-technicaland social systems and resources, and has degradedor disabled governance structures and strategic andoperational decision-making functions) (AustralianGovernment Department of Home Affairs 2018). Itshould be noted that severe to catastrophic disastersdiffer from emergencies in that they exceed business asusual emergency management systems and capabilitydesign parameters.This handbook reflects the intent and content of theNational Strategy for Disaster Resilience (COAG 2011),Australia’s commitment to the Sendai Frameworkfor Disaster Risk Reduction 2015-2030 (the SendaiFramework) and the National Disaster Risk ReductionFramework (Australian Government Department of HomeAffairs 2018).It updates and replaces the 2014 edition of AustralianEmergency Management Arrangements. The handbookis published by the Australian Institute for DisasterResilience, on behalf of the Australian GovernmentDepartment of Home Affairs.This 2019 edition of Australian Emergency ManagementArrangements was reviewed, edited and updatedduring 2018 and 2019. A working group includingrepresentatives from each Australian state and territorywas established to review the handbook and provideinput into the revised content.ScopeIt is important to define the terms 'emergencymanagement', 'emergency' and 'disaster' as these termsare used frequently in this handbook.Emergency management: A range of measures tomanage risks to communities and the environment;the organisation and management of resources fordealing with all aspects of emergencies. Emergencymanagement involves the plans, structures andarrangements which are established to bring togetherthe normal endeavours of government, voluntary andprivate agencies in a comprehensive and coordinatedway to deal with the whole spectrum of emergencyneeds including prevention, response and recovery(COAG 2011).Emergency: An event, actual or imminent, whichendangers or threatens to endanger life, property orthe environment, and which requires a significant andcoordinated response (AIDR 2019).viiThese Arrangements: outline the principles and structures that supportnational coordination of emergency management inAustralia and its off-shore territories recognise that states and territories have the primaryrole for emergency management support the concept of an 'all hazards' approach support the concept of 'shared responsibility' are intended to support, not supersede or conflictwith, specific sector or hazard specific guidancewhere it exists.The role of the Australian Govermnment is to providesupport and assistance to the jurisdictions. TheAustralian government, states and territories andlocal governments may have their own legislationand administrative arrangements for emergencymanagement. The intent of this handbook is to supportand reinforce these arrangments. It is intended for useand guidance by emergency management professionalsin governments at every level, agencies (including notfor-profit entities), businesses and communities.The handbook should be read in conjunction with theNational Strategy for Disaster Resilience, the SendaiFramework and the National Disaster Risk ReductionFramework.The Arrangements will be reviewed and reissued at leastevery three years or more frequently for major changes.The Australia-New Zealand Emergency ManagementCommittee (ANZEMC) will oversee revisions and theDirector General Emergency Management Australia,Department of Home Affairs, approves the publication ofthe Handbook.Australian Emergency Management Arrangements Handbook

IntroductionAustralians expect governments at all levelsto work together with communities in buildingresilience to emergencies. Where emergenciesoccur, communities should be well servedby prevention and mitigation plans and bypreparedness, response, relief and recoveryarrangements that are effective and forwardthinking.Under Australia’s constitutional arrangements, stateand territory governments have primary responsibilityfor the protection of life, property and the environmentwithin their jurisdiction (refer to www.aph.gov.au/aboutparliament/senate/powers practice n procedures/constitution). All levels of government acknowledgethat the impact of some emergencies will be particularlysevere or widespread and may exceed the capability of asingle state or territory.Australia’s emergency management arrangements bringtogether the efforts of the Australian, state, territoryand local governments, non-government organisations,businesses, communities and individuals to delivercoordinated emergency management across all hazards.These Arrangements rely on a high level of trust andcooperation between all parties. They reflect the resultof shared experiences in dealing with and learninglessons from past emergencies and activities such astraining exercises.1The Council of Australian Governments (COAG) hasfocused on a resilience and risk reduction-basedapproach to emergency management policy, whichis aimed at enhancing resilience so that Australiansand their communities are resilient and better able towithstand and recover from emergencies.Internationally, Australia forms strategic partnershipsfor mutual international assistance arrangementsto mitigate or reduce the impact of emergenciesdomestically and globally, particularly in Australia’s regionof interest.Principles of emergencymanagementAustralia’s approach to the management of emergenciesis guided by a number of high-level principles that areintended to provide guidance, flexibility and a broadunderstanding of the approaches to emergencymanagement. The goal of these principles is to improveand provide consistency in policy and decision makingand to support resilience to emergencies and disasters inAustralia.An explanation of the emergency management principlesfollows:Australian Emergency Management Arrangements Handbook

Table 1: Principles of emergency managementPrincipleExplanationPrimacy of lifeThe protection and preservation of human life (including both communities and emergency servicepersonnel) and relief of suffering will be paramount over all other objectives and considerations.ComprehensiveThe development of emergency management arrangements will embrace the phases of prevention,preparedness, response, and recovery (PPRR) across all hazards. These phases of emergencymanagement are not necessarily sequential.CollaborativeRelationships between emergency management stakeholders and communities are based on integrity,trust and mutual respect, building a team atmosphere and consensus. Planning and systems of workreflect common goals and all stakeholders work with a unified effort.CoordinatedThe bringing together of organisations and other resources to support emergency management response,relief and recovery. It involves the systematic acquisition and application of resources (organisational,human and equipment) in an emergency situation. Activities of all stakeholders are synchronised andintegrated. Information is shared to achieve a common purpose and impacts and needs are continuouslyassessed and responded to accordingly.FlexibleEmergency situations are constantly changing. Emergency management decisions may require initiative,creativity and innovation to adapt to new and rapidly emerging challenges. Emergency plans need to beagile to change and adapt to these new circumstances.Risk basedEmergency managers use sound risk management principles and processes in prioritising, allocating andmonitoring resources to manage the risks from hazards. Risk based planning will anticipate the effect ofefforts, the changing hazard landscape and the changing consequences of the emergency.SharedresponsibilityEveryone understands their own responsibility in an emergency, and the responsibility of others.Communities and individuals understand the risk. This encourages all stakeholders to prevent, prepare for,and plan for how they will safely respond to and recover from an emergency situation.ResilienceThe ability of a system, community or society exposed to hazards to resist, absorb, accommodate, adaptto, transform and recover from the effects of a hazard in a timely and efficient manner, including throughthe preservation and restoration of its essential basic structures and functions through risk management(UNDRR 2017).CommunicationInformation is crucial to decision making and to the preservation of life. Emergency managers need tosupport common information systems and are responsible for providing and sharing clear, targeted andtailored information to those who need it, and to those at risk, to enable better decision making by allstakeholders.IntegratedEmergency management efforts must be integrated across sectors, not progressed in silos, ensuring theengagement of the whole of governments, all relevant organisations and agencies, the business sectorand the community.ContinualimprovementAll sectors continuously learn and innovate to improve practices and share lessons, data and knowledgeso that future emergency management is better and the overall cost of impact of emergencies anddisasters is reduced. Continuous monitoring, review and evaluation should examine the processes,timelines and outcomes of plans. Review informs communities and displays transparency andaccountability. Review also enables facilitation of the adaptive change process with communities.2Australian Emergency Management Arrangements Handbook

Chapter 1: Legaland administrativeframework3

Key points The underpinning strategy for Australia’sapproach to emergency management is theNational Strategy for Disaster Resilience(COAG 2011). The Sendai Framework for Disaster RiskReduction and the National Disaster RiskReduction Framework support disaster riskreduction activities in Australia. The Australia-New Zealand EmergencyManagement Committee (ANZEMC) isresponsible for influencing and advocatingfor national policies and capabilities thatreduce the risk of emergencies, minimise thepotential for harm and uphold public trustand confidence in emergency managementarrangements. Australian emergency managementarrangements are scalable and underpinnedby partnerships at every level.Australia’s approach to emergencymanagement is guided by a set of principles.IntroductionState and territory g

handbook. Working Group members AIDR acknowledges the expert guidance from the working group in developing this handbook. Australian Local Government Association – Monica Telesny, Senior Policy Advisor Australian Red Cross – John Richardson, National Resilience Man