Health and Human Services Sector Emergency Management Policy V1.0 – Effective as of 1 July 2019

Health and Human Services Sector Emergency Management PolicyV1.0

To receive this publication in an accessible format phone (03) 909 68849 using the National Relay Service 13 36 77 if required, or email empolicy@dhhs.vic.gov.au

Authorised and published by the Victorian Government, 1 Treasury Place, Melbourne.

© State of Victoria, Department of Health and Human Services. July 2019

Available at www.dhhs.vic.gov.au

Contents

1 Introduction.....................................................................................................................................1.1 Purpose and intent...........................................................................................................................

1.2 Rationale..........................................................................................................................................

1.3 Policy outcomes...............................................................................................................................

1.4 Policy scope.....................................................................................................................................

1.5 Definitions of key terms....................................................................................................................

1.6 Commencement...............................................................................................................................

2 Emergency preparedness planning..............................................................................................2.1 Health services.................................................................................................................................

2.2 Residential services..........................................................................................................................

2.3 In-home and community-based services........................................................................................

2.4 Home-based care services (out-of-home care)..............................................................................

2.5 Social Housing................................................................................................................................

2.6 Exemption from relocation for Code Red days...............................................................................

3 During and after emergencies.....................................................................................................3.1 Notifying the department during an emergency..............................................................................

3.2 Home-based care...........................................................................................................................

3.3 Code Red day requirements...........................................................................................................

3.4 Notifying the department after an emergency.................................................................................

4 Reporting.......................................................................................................................................4.1 Compliance reporting – directly delivered services.........................................................................

4.2 Monitoring and compliance reporting – funded agencies................................................................

4.3 Assurance status report..................................................................................................................

Appendix 1 DHHS Operations Divisions Emergency Management contact numbers.................

Appendix 2 Accessible text version of diagram at figure 1............................................................

1 Introduction

1.1 Purpose and intentThe Health and Human Services Sector Emergency Management Policy supports the health and human services sector to maximise the health, wellbeing and safety of Victorians who access services by defining responsibilities and requirements to prepare for emergencies.

The Emergency Management Act 1986 and 2013 provides the Victorian Government’s emergency management responsibilities. The Emergency Management Manual Victoria (EMMV) contains policy and planning requirements for the emergency management sector in Victoria. Under the EMMV, the department has responsibility for:• promoting awareness of safe practices and emergency procedures and implementing safety and

warning systems for clients and funded services• providing whole-of-health leadership and direction in planning and preparing for emergencies with

major health consequences, including mass casualties.

Through this policy, it is intended that all organisations delivering services to Victorians within the health and human services sector are well prepared for all emergencies and can implement a response in the event of an emergency that is appropriate to the needs of their clients.

1.2 RationaleVictoria has experienced a broad range of significant emergencies. Emergencies can cause direct risks to service continuity of the health and human services sector and the health and wellbeing of people accessing services. Types of emergencies that have occurred in Victoria include:• floods, storms or bushfires• industrial fires• explosions and accidents• extreme heat and heatwaves• epidemics, pandemics or contamination of food or water supply, and • disruption to essential services such as electricity, gas and telecommunications networks.

The frequency and changing risk profile of emergencies continues to reinforce the importance of emergency preparedness and planning across Victoria’s health and human services sector.

1.3 Policy outcomesThe diagram at Figure 1 describes the intended outcomes of the department’s Emergency Preparedness activities, and the intended benefits for people who access services provided across the entire health and human services sector.

All agencies that provide health or human services are encouraged to use this policy’s companion document, Emergency Preparedness Reference Guide, to guide their emergency preparedness responsibilities.

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Figure 1- Hierarchy of outcomes for the health and human services sector Emergency Management Policy

1.4 Policy scopeCompliance with this policy is required by:• services that are directly delivered by the department • agencies delivering services that are funded by the department, as outlined in service agreements,

funding plans and other relevant performance agreement documentation• any other agency or service provider, as stated in contractual agreements or regulatory/registration

requirements, including quality and safeguards for disability service providers involved in the transfer of Government services.

Agencies who do not meet any of the above conditions are out of scope of the policy.

1.5 Definitions of key terms The following terms have specific meaning in the context of this policy:• client – individuals or families who are receiving a service, including children and young people in

out-of-home care arrangements, patients of health services and residents of residential services.• Code Red – is the highest fire danger rating in Victoria. It signifies the worst conditions for bushfires

or grassfires. A Code Red fire danger rating means that if a fire were to start:– it will be uncontrollable, unpredictable and fast moving– fire services will find it difficult to put out– there is a high likelihood that people in the path of a fire will be killed or seriously injured– even the best prepared homes will not be safe1.

1 https://www.cfa.vic.gov.au/documents/20143/80821/FINAL_EMV_Code_Red_FAQs_General_FAQs.pdf/b1f467dc-50e7-be63-da51-7d0e3362c059

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• control agency – the primary or lead organisation responsible for responding to the emergency. For example, the State Emergency Service (SES) is usually the control agency for storm or flood events.

• directly delivered services – services delivered by the Department of Health and Human Services.• emergency – Definition from the Emergency Management Act 1986:

‘An emergency due to the actual or imminent occurrence of an event which in any way endangers or threatens to endanger the safety or health of any person in Victoria, or which destroys or damages, or threatens to destroy or damage, any property in Victoria, or endangers or threatens to endanger the environment or an element of the environment in Victoria including, without limiting the generality of the foregoing:– an earthquake, flood, wind-storm or other natural event– a fire – an explosion– a road accident or any other accident – a plague or an epidemic– a warlike act– a hi-jack, siege or riot– a disruption to an essential service.’

• funded agency – an organisation that has a formal service agreement with the department for the delivery of health and/or human services or is in scope of the transition of government disability accommodation services.

• health services – services covered by the Health Services Act 1988, including metropolitan Melbourne hospitals and health services, and rural hospitals and health services2.

• heightened bushfire risk – Victorian Fire Risk Register-Bushfire Extreme Risk (VFRR-B Extreme) areas or sites located within a Bushfire Prone Area that have been assessed and determined as being of sufficiently high risk that early relocation prior to a Code Red day may be required.

• home-based care – foster care and kinship care for children and young people. • home-based care service contact – means the funded agency or department area office with whom

a foster carer or kinship carer regularly engages.• in-home and community-based services – services provided in the home or in community settings

such as personal care, day services, community-based respite, or information and referral services.• residential services – overnight accommodation services provided in a facility-based setting. For

example, residential and lead tenant out-of-home care arrangements, supported independent living (including respite), youth foyers and the Disability Forensic Assessment and Treatment Service.

• service continuity – means a client continues to receive a service during and after an emergency and could include the service being delivered from an alternative setting or by an alternative provider.

• social housing – means public housing and community housing, including transitional housing and crisis accommodation.

• State Health Coordinator – an emergency management role responsible for representing and coordinating the activities of the department in response to an emergency.

1.6 CommencementThe policy is effective as of 1 July 2019 and replaces the Health and Human Services Sector Emergency Preparedness Policy 2018-19. This edition remains in place until notification of its replacement or repeal.

2 https://www2.health.vic.gov.au/hospitals-and-health-services/public-hospitals-victoria

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2 Emergency preparedness planning

All services in scope of the policy (section 1.4Error: Reference source not found) must undertake emergency preparedness planning for the range of emergency situations that could have health, wellbeing and safety consequences for clients and staff. Emergency preparedness plans must be reviewed annually.

2.1 Health servicesHealth services’ emergency management obligations and responsibilities are contained in legislation, standards and guidelines. This includes planning and preparedness activities, as well as decision-making and actions that may need to be taken on behalf of the organisation during an emergency. These regulatory requirements are enumerated in the department’s policy and funding guidelines for health services.

Health service emergency preparedness plans must:• be aligned to the State Health Emergency Response Arrangements3

• consider the service’s ability to temporarily accommodate relocated or evacuated patients from other facilities or from the community. These requests will most likely come from the department through the State Health Coordinator, under the State Health Emergency Response Arrangements

• describe service continuity arrangements in the event of an emergency• consider temporary relocation and transport arrangements for patients and staff leading up to or

during an emergency. In doing so, planning for the appropriate use of both ambulance services and non-emergency patient transport resources must be considered, particularly as ambulance services may be limited in the event of an emergency.

• be reviewed and exercised annually.

For some emergencies, such as bushfire, remaining in-place may be the safest option. However, the conditions under which such a strategy is appropriate should be the subject of a detailed assessment.

2.2 Residential services• Emergency preparedness plans must consider the range of possible emergencies that could impact

on the health and wellbeing of clients and staff. This should include planning for heatwave, prolonged power disruption and smoke events.

• Emergency preparedness plans must include provisions for early relocation before, and evacuation during emergencies.

• Facility-based respite services must include arrangements for ceasing or altering services during an emergency and for resuming services afterwards.

• Plans must be reviewed and exercised annually.

2.2.1 Services in areas of heightened bushfire risk• In addition to the requirements stated above, residential services delivered from facilities located in

areas of heightened bushfire risk must undertake the following activities as part of emergency preparedness planning:– have an on-site bushfire risk assessment (as part of the site hazard assessment) undertaken by

the Department of Health and Human Services that considers client profiles and the vulnerability of the service’s buildings to bushfire.

3 https://www2.health.vic.gov.au/emergencies/shera

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– undertake site preparation and building maintenance works as identified through the on-site assessment.

– develop a bushfire survival plan that details (a) the trigger for early relocation including ahead of a Code Red day, if required; (b) any site works to be undertaken prior to the bushfire season; (c) emergency contact details; (d) safer sites to which clients may be relocated; and (e) transport.

– ensure staff are trained to enact the plan for early relocation.

2.3 In-home and community-based services• In-home and community-based services must give due regard to the range of possible emergencies

that could impact on the health and wellbeing of their clients and staff, and plan accordingly.• Services provided in the home or at community venues must have a plan for the cessation or

relocation of services during emergencies.• Emergency management plans must include arrangements for:

– timely and appropriate communication with clients about changes to service provision.– transport to alternative locations to continue to provide the service (if necessary).– contingency planning for clients to whom usual service provision arrangements cannot be

delivered during emergencies.

2.4 Home-based care services (out-of-home care)Home-based out-of-home care services must give due regard to the range of possible emergencies that could impact on children and young people placed in out-of-home care and plan accordingly.

2.4.1 Services in areas of heightened bushfire risk• All clients placed in care arrangements located in an area of heightened bushfire risk must have a

Leave Early Plan4 as part of emergency preparedness planning. Leave Early Plans must include the following requirements:– suitable leaving early arrangements for declared Code Red days or when advised to relocate by

Emergency Services.– safe destinations that are not in heightened bushfire risk areas and which can be safely accessed.– details about periods when clients will be away from their recorded residential address (for

example, during the school holiday period).– alternative contact details for clients when they are away from their recorded residential address.

• Leave Early Plans for clients in home-based care settings must be completed and submitted to the department within three days of placement during the high-risk season (1 November to 30 April each year).

2.5 Social Housing• Tenants of social housing have access to the same general community information and resources so

that they can make their own decisions about when to relocate in an emergency.• Social housing providers are encouraged to consider involving management, staff and tenants or

residents in the development of emergency preparedness plans to ensure the needs of all are reflected.

2.5.1 Emergency management responsibilities• Community housing agencies must:

– have procedures in place to ensure they receive or are made aware of VicEmergency alerts

4 A leaving early plan template is available for out-of-home care services in home-based settings

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– have an emergency preparedness plan.• All crisis accommodation service providers must have comprehensive emergency preparedness plans

that: – address any vulnerabilities or special needs of clients and staff.– address any risks associated with relocating clients including transport.– address the appropriateness of alternative accommodation within community settings.

2.5.2 Crisis accommodation located in areas of heightened bushfire riskCommunity housing agencies that operate crisis accommodation services in areas of heightened bushfire risk must also have a bushfire emergency preparedness plan as part of their comprehensive emergency management plan which includes:• collaborative planning with clients, as part of their individual service planning and risk management

planning.• whether or not services are to operate on declared Code Red days and, if so, how they will operate. • plans to communicate to clients and staff regarding closures of accommodation.

2.6 Exemption from relocation for Code Red daysAn application for an exemption from relocation for a Code Red day can be made where it can be clearly demonstrated that relocation will result in significant negative impacts to the health, safety and wellbeing of a client, or clients concerned.

An application must outline an evacuation plan that will be implemented should a recommendation to evacuate be made5.

The application is assessed by the relevant local office of the department and the service notified of the outcome.

If an on-site property assessment has not been finalised for a residential service, exemption from relocation will not apply and the service will be required to relocate in response to the declaration of a Code Red day.

5 A recommendation to evacuate is made by the incident controller and Victoria Police as the agency responsible for managing evacuation.

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3 During and after emergencies

ALWAYS CALL 000 (TRIPLE ZERO) IF THERE IS AN IMMEDIATE DANGER TO LIFE

3.1 Notifying the department during an emergency• All services are expected to contact the department if an emergency results in changed service

delivery arrangements.• Refer to Appendix 1 for contact numbers.

3.2 Home-based care• Carers must always relocate any child or young person in their care to a safe location when

confronted with a perceived emergency or safety threat.• Carers should consider modifying their routine behaviour when emergency warnings, including Heat

Health Alerts, are in place to maximise the safety of children and young people in their care, their personal safety and that of family members.

• If Victoria Police or the designated control agency recommends evacuating because of an emergency, carers are required to:– immediately evacuate to a safe place if able to do so, and – notify their service contact as soon as practicable following evacuation.

• Services are to notify the department as soon as practicable via the contact numbers at Appendix 1.

3.3 Code Red day requirements

3.3.1 Section ScopeSection 3.3 applies to services in scope of sections 2.2 Residential services and 2.4 Home-based care services that are:• located in an area of heightened bushfire risk, and• the weather district in which the facility or client is located is subject to a Code Red declaration.

3.3.2 Code Red day actions• Bushfire survival plans or leave early plans must be activated and relocation commenced by no later

than the evening before the declared Code Red day.• Relocation of clients must be completed before the Code Red day begins.• The department must be notified of client relocations before 9am on the Code Red day (refer to

Appendix 1 for contact details).• If the situation requires an alteration from the agreed plans, notification to the department must be

made as soon as practicable.

3.4 Notifying the department after an emergency• The department must be notified when services have returned to normal arrangements – reporting

this no later than five days after the Code Red day. • If the service or placement has not or is not expected to return to normal within five days of the Code

Red day, the department must be notified by the fifth day, indicating when the service expects to return to normal.

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4 Reporting

All services that are delivered by or funded by the department must report annually that they have undertaken the emergency preparedness planning and activities appropriate to the services they deliver.

The information collected through the reporting processes is collated to provide the department with an overview of the sector’s emergency preparedness.

4.1 Compliance reporting – directly delivered servicesReporting on compliance is undertaken in a single process on an annual basis.

Reporting for directly delivered services includes the activity undertaken by the department in regard to property preparedness of residential services in areas of heightened bushfire risk.

4.2 Monitoring and compliance reporting – funded agenciesReporting aligns with the department’s performance monitoring arrangements for funded agencies.

A transitional process may be required for 2019. Information and reporting mechanisms will be communicated to relevant funded agencies by 16 September 2019.

4.2.1 Health services Health services provide assurance to the Victorian Health and Human Services Building Authority, confirming that planning and preparedness activities for power disruption in accordance with the Australian Standards for emergency power supplies in hospitals (AS3009) have been undertaken.

This may include evidence of contingency planning, for example, evidence of routine testing, maintenance and continuity of diesel supply through local suppliers.

4.3 Assurance status reportThe department will collate a status report based on the information received from services as part of its annual assurance process by 1 November each year.

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Appendix 1 DHHS Operations Divisions Emergency Management contact numbers

If a relocation or evacuation is required, in line with policy, due to an emergency or a declared Code Red day, service providers and carers (foster care and kinship care) are required to advise department via the relevant contact number below.

North Division 1300 080 829

West Division 1800 780 354

East Division 1300 576 518

South Division• Gippsland region 1300 528 951• Southern metro region 1800 309 916

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Appendix 2 Accessible text version of diagram at figure 1

Hierarchy of outcomes1. Immediate

outcomesThe Emergency Management Policy clearly states the emergency preparedness requirements of in-scope services

Organisations across the sector can access resources and information to help them prepare for emergencies

Service providers are able to report that they have prepared for emergencies, based on the services they deliver and client risk

2. Short term outcomes

The department and sector are prepared for all emergencies and have in place plans appropriate to services and the clients who access them

The department is assured that the sector is prepared for emergencies

3. Longer term outcomes

Emergency preparedness of the health and human services sector maximises the health, safety and wellbeing of Victorians during and after emergencies

The Victorian community and government have confidence in the department’s oversight of emergency preparedness in the sector

4. DHHS Strategic outcomes

Victorians are healthy and well

Victorians are safe and secure

Victorian health and human services are person-centred and sustainable

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