Emergency Assistance Centre Plan 2013-2016 - Sandwell · RMT Recovery Management Team SIM Senior...
Transcript of Emergency Assistance Centre Plan 2013-2016 - Sandwell · RMT Recovery Management Team SIM Senior...
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Executive Summary
The Council is well rehearsed in responding to incidents, for example during an evacuation;
one of our duties is to set up emergency rest centres. This provides safe shelter for those
affected while the emergency services respond. When the danger has been removed most
people think that the incident is over, however, for those affected this is often just the start.
As a result many services can be made available to help those affected, such as, emotional
and practical support, for the longer term recovery. The Council and its professional
partners have many emergency plans which facilitate the provision of services to those
affected.
This Emergency Assistance Centre Plan draws such arrangements and plans together into
one guidance document to ensure council staff are aware of their responsibilities and those
of their partners, ensuring there is an effective response and that those affected by an
incident receive the appropriate assistance.
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Administration
This plan is a controlled document and it replaces all previous versions. Please
destroy/archive previous versions in a confidential manner.
Version Control
Distribution List
Role Copies
Sandwell Chief Executive and Deputy Chief Executive 1
Sandwell Directors 10
Sandwell Resilience Unit 5
Walsall Chief Executive 1
Walsall Executive Directors 6
Walsall Emergency Planning Unit 5
British Red Cross 1
Electronic copies available
To ensure the validity of this document, holders are requested to send any amendments to
the information contained in the plan to the appropriate Resilience Team:
Sandwell Council
Resilience Unit
Freeth Street
Oldbury
B69 3DE
Tel: 0121 569 3983
Email: [email protected]
Web:www.sandwell.gov.uk/emergency_planning
Walsall Council
Emergency Planning Unit
Room 39a, Council House
Lichfield Street
Walsall
WS1 1TP
Tel: 01922 65 2026
Email: [email protected]
Web: www.walsall.gov.uk/emergencyplanning
Date Version No. Name/Department Amendment Details
09/2012 0.1 Draft Emergency Planning Review and Restructure
11/2012 0.2 Draft Walsall and Sandwell
Resilience Teams
Review
04/2013 0.3 Draft Emergency Planning Public Health input and
changes
06/2013 1.0 Walsall and Sandwell
Resilience Teams
Final
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Contents
Executive Summary ............................................................................................................... i
Administration ........................................................................................................................ii
Contents ............................................................................................................................... iii
Acronyms .............................................................................................................................. iv
1. Introduction .................................................................................................................... 1
2. Background Information ................................................................................................. 4
Part 1 - Provision and Activation
3. Response Options ......................................................................................................... 6
Response Phases ................................................................................................................. 7
3.1 Immediate Response (first few hours) ........................................................................ 7
3.2 Medium Term Response (next few days) ................................................................... 8
3.3 Medium Term Response (next few weeks) ................................................................. 9
3.4 Long Term Response (many months) ...................................................................... 10
4. Emergency Assistance Centres (EAC) ......................................................................... 11
4.1 Survivor Reception Centre (SRC) ............................................................................. 13
4.2 Rest Centre .............................................................................................................. 14
4.3 Family and Friends Reception Centre ...................................................................... 15
4.4 Humanitarian Assistance Centre (HAC).................................................................... 16
4.5 Community Assistance Centres (CAC) ..................................................................... 17
4.6 Mass Vaccination Centres ........................................................................................ 18
4.7 Further Support ........................................................................................................ 19
5. Media and Communication .......................................................................................... 20
5.1 Communications Plan ............................................................................................... 20
5.2 Communicating with the Public ................................................................................. 21
6. Recovery Phase........................................................................................................... 23
7. Plan Activation ............................................................................................................. 24
Part 2 - Management and Responsibilities
8. Management Arrangements ......................................................................................... 28
9. Roles and Responsibilities ........................................................................................... 34
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Appendices
Appendix A Model of Phased Provision ......................................................................... 42
Appendix B Finance ...................................................................................................... 43
Appendix C Template Emergency Information Leaflets ................................................. 44
Appendix D Information Management ............................................................................ 47
Appendix E EAC Management Provisions ..................................................................... 49
Appendix F Task Sheets ............................................................................................... 50
Acronyms
CAB Citizens Advice Bureau
CAC Community Assistance Centre
COI Central Office of Information
CRB Criminal Records Bureau
CRR Community Risk Register
DBS Disclosure and Barring Service
DPH Director of Public Health
EAC Emergency Assistance Centre
DEC District Emergency Centre
DVI Disaster Victim Identification
FCO Foreign and Commonwealth Office
FFRC Family and Friends Reception Centre
FLO Family Liaison Officer
HAC Humanitarian Assistance Centre
HALO Humanitarian Assistance Lead Officer
LRAG Local Risk Assessment Guidance
NHSE National Health Service England
PHE Public Health England
RC Rest Centre
RCG Recovery Coordinating Group
RED Resilience and Emergencies Division
RMT Recovery Management Team
SIM Senior Identification Manager
SIO Senior Investigating Officer
SRC Survivor Reception Centre
STAT Scientific and Tactical Advice Team
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1. Introduction
Under the Local Government Act 2000, local authorities have a responsibility to ensure the
economic, social and environmental well-being of the community that they serve. This
involves Emergency Planning Teams writing emergency plans and assisting in establishing
an Emergency Assistance Centre in support of Emergency Responders and Adult Social
Care and Children’s Services departments.
The purpose of this document is to provide a contingency plan which will act as the template
for the delivery of Humanitarian Assistance in the event of an ‘emergency’.
This plan covers in two parts; the humanitarian response to any major incident involving
people affected in the Borough, and the management of an Emergency Assistance Centre:
Part 1 – Provisions and Activation
Part 2 – Management and Responsibilities
Previously titled the HAC Plan – Humanitarian Assistance Centre Plan; this document will
now be known as the EAC Plan – Emergency Assistance Centre Plan. This is simply a
change in terminology as the original document incorporated a variety of assistance centres
and response options. The overarching title ‘HAC Plan’ inferred that information contained
within it was only about HACs and not the other types of centre used in emergency response
and recovery.
Within the Management and responsibilities sections of the plan, HAC will still be used as an
overarching term due to these roles being created and used nationally; for example the role
of the HAC management group can be applied to all emergency assistance centres.
Aim To ensure that humanitarian needs are met effectively for those affected by major
emergencies.
Objectives This document is to be used as a framework to:
provide effective management structures,
enable a flexible and proportionate response,
outline the roles and responsibilities in humanitarian assistance responses.
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Scope This plan is a comprehensive document which enables responding Agencies to provide an
appropriate level of humanitarian assistance response to a major emergency, where a
substantial psychosocial response is required.
This plan establishes the following capabilities:
the structures required to coordinate the humanitarian response,
the capability to deploy staff to undertake immediate practical and emotional
support, to assist affected people in accessing services,
the capability to deploy staff to provide expert advice in particular areas (housing
advice, benefits advice), who have been trained to understand the impact of traumatic
events on affected people, and who can undertake their normal role in the unusual
emergency context,
management structures to support the Humanitarian Response,
roles and responsibilities of key officers,
menus of tactical options to develop a flexible and appropriate response,
mechanisms for information sharing to enable an appropriate response.
The immediate response to an emergency of this kind is dealt with under the Emergency
Plan. Some of the capabilities provided for by this plan are of relevance to the immediate
response (e.g. the staffing of Reception Centres). However, the main focus of this plan is
the medium to longer-term support required by people affected by major emergencies.
Related Documents The following documents are related to this plan, and should be read in conjunction with this document:
Emergency Plan,
Community Recovery Plan,
Rest Centre Plan,
Media Crisis Plan,
Community Tension Operational Response Plan,
Category One Responder’s Major Incident Plans. This plan indicates, wherever possible, where these other plans are relevant.
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Plan Development The following guidance was used in order to create this plan:
Non statutory guidance accompanying the Civil Contingencies Act 2004
Emergency Preparedness;
Emergency Response and Recovery.
Non statutory guidance on establishing Humanitarian Assistance Centres
Humanitarian Assistance in Emergencies.
Department for Culture, Media and Sport
A detailed guide to roles and responsibilities in humanitarian assistance.
Literature and Best Practice Review and Assessment: Identifying People’s Needs in
Major Emergencies and Best Practice in Humanitarian Response.
Home Office and Cabinet Office
The Needs of Faith Communities in Major Emergencies: Some Guidelines
Partner Agency Plans
Essex Resilience Forum – Emergency Assistance Centre Guidelines
London Resilience – London Humanitarian Assistance Plan
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2. Background Information
What is Humanitarian Assistance? Humanitarian assistance is about ensuring that those involved and affected by a major
incident are properly cared for. The exact focus and nature of provision will depend on the
type of emergency, the impact it has had on the community, and the needs of those affected.
Humanitarian assistance provision is likely to include:
basic shelter;
information about what has happened;
medical assistance/treatment;
financial and legal support;
psychosocial support;
advice and direction on how to get further help and assistance;
communication facilities to allow people to contact and meet each other;
providing a link to ongoing police investigation where relevant; and
providing a point of contact for longer term support and advice.
When considering how to meet the needs of those affected it is important to recognise that,
in addition to medical assistance and material welfare, many of those affected by an
emergency will have psychosocial needs.
Humanitarian Assistance will be required in the immediate aftermath of the incident, but in
many cases this need will extend into the medium and longer term. It is important to look
beyond the immediate response effort, and consider the longer-term recovery and
rehabilitation issues for individuals, families and communities. (Section 3.1-3.4)
Agencies Involved
The care and assistance given to meet the needs of those affected lies at the heart of
emergency response and recovery work. This brings together a wide range of agencies
including:
NHS: which provides assistance to those suffering from injury or trauma;
Polices Services: who are responsible for establishing the identity of the injured and
fatalities, providing information to family and friends and conducting criminal
investigations;
Local Authorities: who co-ordinate welfare support and social care;
Commercial Organisations (transport companies/ housing groups): who, in
consultation with the responding authorities, may provide humanitarian assistance to
those affected by emergencies occurring in their sectors;
Voluntary Organisations: which have particular expertise in dealing with health, and
practical care needs; and
Embassy Staff: where an emergency affects foreign nationals or takes place overseas.
For more detail on responding agencies Roles and Responsibilities see Section 9.
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Types of Incident Emergencies can cause death and physical injury; they can also have an impact on the
psychological, social and economic welfare of individuals affected, as well as their families,
friends and wider communities.
There are many incidents that may trigger the need for a psychosocial response. These are
likely to be incidents involving significant numbers of casualties and/or fatalities. However,
other events may be traumatic if they entail an extreme impact on the homes of livelihood of
affected individuals.
Some of the possible incidents requiring a psychosocial response are outlined below:
Scale of Response The scale of the capability required has been based on the West Midlands Community Risk
Register (CRR) and on the Local Risk Assessment Guidance (LRAG). The LRAG divides
emergencies into two categories – local and national.
What is Psychosocial Support? The term ‘psychosocial support’ is given to an approach to humanitarian assistance which
combines immediate practical support with ‘psychological first aid’.
Psychological first aid refers largely to a sympathetic and understanding approach - listening
and befriending. This is in contrast to any kind of counselling, debriefing or formal
psychological or psychiatric provision. Provision of this kind should only be provided by
qualified practitioners, and should never be provided in the initial stages of the response.
Inappropriate and early interventions of this kind can be extremely damaging and counter-
productive.
It should be noted that there will be considerable variation in the level of support required,
between individuals, and over time. Equally, the psychological impact of different
emergencies will not be equivalent, and will depend on many factors.
Incident types Localised examples Large-scale examples
Industrial Accidents
• Fire/explosion at gas terminal/ LPG/LNG gas storage site
• Accident radioactive release • Biological pathogen release • Toxic release from local industrial
accident (e.g. chlorine)
• Large scale fire/explosion at gas terminal/ LPG/LNG gas storage site
• Explosion at natural gas pipeline
• Large toxic Chemical Release
Transport Accident
• Aviation accident • Rail accident • Local accident on trunk road/
motorway • Transport accident involving
HAZCHEM / fuel/explosives
• Aviation accident over conurbation
• Overturned lorry with waste spillage
Structural Failure • Building or bridge collapse • Dam collapse
Threats • Terrorist incident • Major terrorist attack
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3. Response Options
Overview The needs of people involved in an incident change over time, therefore, the response must
adapt (Appendix A Model of Phased Provision). There is no definitive answer to what should
be provided when developing the Humanitarian Response, decisions will be made at the
time of the incident about which options need to be activated, based on the circumstances.
Consideration of the appropriate option will be informed by the numbers of people affected,
the severity of the incident, spatial and demographic considerations (where people live, the
type of people affected), and possibly a number of other factors. The table below shows
support and response options:
Type of Assistance
Centre Purpose Timescale Lead
Casualty Bureau
Initial point of contact for receiving/assessing information about victims, to: - inform the investigation - trace and identify people - reconcile missing persons - collate accurate information for
appropriate dissemination
Immediate Police
Survivor
Reception Centre (SRC)
A secure area in which survivors not requiring acute hospital treatment can be taken for short-term shelter and first aid. Evidence might also be gathered here.
Immediate A survivor reception centre might be established and run initially by the emergency services – those first on the scene – until the Local Authority becomes engaged in the response and assumes lead role.
Rest Centre
A building designated or taken over by the local authority for temporary accommodation of evacuees/homeless survivors, with 24 hour facilities.
Immediate to Short Term
Lead responsibility sits with the Local Authority, with contributions from police, Public Health and the voluntary sector.
Family and
Friends Reception
Centre (FFRC)
To help reunite family and friends with survivors – it will provide the capacity to register, interview and provide shelter for family and friends. Interpreters may be required and provided.
First 24 hours A family and friends reception centre would be established by the police in consultation with the Local Authority, and staffed by these organisations and suitably trained voluntary organisations. Representatives of faith communities might be consulted.
Humanitarian
Assistance Centre (HAC)
A focal point for information and assistance to all those directly affected by the emergency. - Facilitates gathering forensic
evidence and the identification process.
A mechanism to enable a seamless multiagency approach
Long Term SCG
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Response Phases
3.1 Immediate Response (first few hours)
It can be assumed that the Humanitarian Assistance offered in the first few hours of an
incident will be activated before the Humanitarian Assistance Steering Group has been
established. (See Part 2 Section 8)
The care and treatment of the injured is a high priority response objective with the
preservation of life being the primary aim. Injured survivors may be taken to a casualty
clearing station, which will usually be sited in a building or temporary shelter close to the
ambulance loading point. Medical and paramedical personnel will carry out triage and any
appropriate stabilisation measures before ensuring that casualties are evacuated in
accordance with priorities for hospital treatment.
Immediate humanitarian concerns will include:
to direct those people affected to places where they can shelter and recover;
to ensure names and addresses of all those affected are recorded and fed into one
central point (a function that might be taken by the police where relevant);
for both survivors and worried family and friends – to offer a single point of access to
local responders, as the emergency unfolds.
Option Trigger Decision Lead Secondary Plan
Reference
Survivor
Reception Centre
Significant number
of survivors/ walking
wounded
Police
Silver
Police LA
Voluntary
agencies
Emergency
Plan
Rest Centre
Significant number
of displaced people
Silver LA Voluntary
agencies
Rest Centre
Plan
Family and
Friends
Reception Centre
Large numbers of
calls to casualty
bureau. ‘Searching
behaviour’
Gold Police LA
Voluntary
agencies
Emergency
Plan
Deployment of
staff to A&E
Significant numbers
of hospitalised
survivors
Police
Silver
Police Major
Incident
Plans
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3.2 Medium Term Response (next few days)
The below response options might be established in the early medium term if the triggers
highlight the need.
Option Trigger Decision Lead Secondary Plan
Reference
HAC
Mass fatality
incident
SCG/
Humanitarian
Assistance
Steering
Group (HASG)
LA Police
Temporary
Mortuary
Support
Multiple Fatalities Mass Fatality
Coordination
Group (MFCG)
Police Voluntary
Agencies
/ LA
Mass
Fatality
Plan
Community
Assistance
Centres
Incident with
significant
community
impact, not
requiring HAC
HASG LA Voluntary
Agencies,
other
responders
as required
Communicating
with the Public:
Newsletter,
Website,
Leaflets
All incidents HASG Police
/ LA
Other
responders
as required
Media
Crisis Plan
Helpline Large numbers of
calls/ enquiries
anticipated
SCG/ HASG Red
Cross
/ LA
Voluntary
agencies
Managing
tributes,
condolence
books
Significant
numbers of
tributes being left
HASG LA Voluntary
agencies
Community
Recovery
Plan
Work in
partnership with
Family Liaison
Officer’s
Large-scale FLO
deployment and
long-term needs
Police Police LA and
voluntary
agencies
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3.3 Medium Term Response (next few weeks)
Option Trigger Decision Lead Secondary Plan
Reference
Transition to
longer term
Assistance
Centre
Recommendation
of HAC
Management
Group
Humanitarian
Steering
Group
HALO MHT / Public
Health
Consultation
engagement
Commencement
of Recovery
Phase
Humanitarian
Steering
Group
HALO Humanitarian
Steering
Group
Community
Recovery Plan
Facilitating
Support
Groups
Initiative of
affected people
Humanitarian
Steering
Group
HALO Voluntary
Organisations
Capabilities
document
Community
Recovery Plan
Ongoing
Campaign:
Newsletter,
Website,
Leaflets.
Will continue as
long as
necessary
Humanitarian
Steering
Group / Gold
Recovery
Group
LA Other
agencies
Media Crisis
Plan
Development of Referral Pathways There is a need to ensure that affected people can access in particular mental health, but
also other support services. There is a complexity of services that affected people may
present to, in their personal journey to recovery. These include statutory and voluntary
sector agencies, faith and community organisations pathways should be developed.
Key steps:
Assessment of likely future needs
Establish the key long term service providers
Develop a strategy for promoting key services
Managing and monitoring
The key long term service provision may include an Assistance Centre, a “Screen and Treat”
service provided by Mental Health Trusts, or may be provided by mainstream health and
social care services.
It is recommended that the greater the needs of affected people the simpler the means
of accessing help should be. Simplicity of referral pathways provides a greater chance
that people will access the required help.
Once referral pathways are established, it is also important to monitor who is being referred
to each service, and where from. Service providers should provide management information
on numbers referred, to and from, their service to the Humanitarian Steering Group. The
development of Referral Pathways is likely to form a key element of the exit strategy for the
response as a whole.
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3.4 Long Term Response (many months)
Option Trigger Decision Lead Secondary Plan
Reference
Transition to
mainstream
services
Wind down of
HA response
Multi
Agency
LA
Memorials and
anniversaries
Significant dates LA LA Community
Recovery Plan
Inquest Support Dates of
Inquests are set
Police Police LA
Implementing
Exit Strategies
Multi
Agency
Transition to Mainstream Services It is likely that it will be necessary at some stage to mainstream the ongoing care of people
affected by a major incident, if there are long term issues. This should be anticipated and
planned for in any incident that causes mass fatalities or life-changing injuries.
A key consideration will be how to “hand over” cases from any centralised provision
(especially Humanitarian Assistance Centres) to council and local health partners. It should
be noted that different elements of service provision may transition at different times,
according to need and circumstances. It is of course the case that the individual has the
right not to access mainstream services. Care and sensitivity in how this transition is
handled is critical.
The Council will be bound to consider each individual’s needs on a case-by-case basis,
considering their eligibility for ongoing services in relation to the Fair Access to Care
Services policy. Whilst this policy operates in similar fashion in all authorities, the actual
services offered can vary markedly according to local resources, and priorities. This is may
result in differences in provision between individuals in similar circumstances.
It will therefore be essential to consider carefully how to manage this transition. Actions may
include:
Communicating with partners at an early stage, and particularly with the local
authorities whose residents are accessing central service provision
Developing a strategy for communicating with service users
Considering a ‘wind-down’ period where the service closes to new referrals, prior to full
exit
Updating web materials to sign-post people to their own local social care services
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4. Emergency Assistance Centres (EAC)
The consequences of an emergency can be far reaching for all those affected – particularly
worried and bereaved families and friends and survivors, but also the emergency services
and the wider community.
Early on in emergency response the priority is to save lives and meet the immediate needs
of survivors. However mechanisms need to be established to effectively provide information
and support to everyone adversely affected by the emergency at the earliest practical stage.
Local responders need to also engage as early as possible with the medium and longer-term
needs of all of those affected, both directly and indirectly.
Different emergencies will require different types of Emergency Assistance Centre (EAC).
The activation and management of an EAC will be dependent upon the Response Phase,
the scale of the emergency and specific needs of those affected. Depending on the facilities
available, it may be possible to develop an initial rest/reception centre into a fully functioning
Humanitarian Assistance Centre by adding a wider range of services at the same site.
In practice, an EAC should be named after the emergency that it is set up to address; the
term ‘Assistance Centre’ should always follow the emergency name. For example:
Factory Fire Assistance Centre;
Or something more specific if it has been named by Responders or within the media.
Possible EAC Locations have been identified in the Rest Centre Plan. These locations may
not be suitable for all types of Emergency Assistance Centres, therefore should be
considered on an individual incident basis and adapted where appropriate.
Risk Assessment of Premises
A risk assessment of the premises should be carried out to ensure that it meets current
Health and Safety requirements. The following points should be taken into consideration:
On opening an EAC a dynamic risk assessment should be undertaken by team
leaders in their particular function – any dangers should be reported to the H&S
representative on the HAC Management Group.
A Fire Assessment review should be carried out (new use of the premises).
Community Impact Assessment - communities may be affected in different ways,
dependent upon the nature and cause of the emergency. If the victims are
predominantly from one community there may be heightened fear and anger and the
need for increased security.
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Layout and Physical Facilities
Ideally, the EAC should have the ability to carry out multiple functions in order to meet the
needs of those affected by an emergency. The following is a list of facilities that should be
considered appropriate by the HAC Management Group when setting up a facility:
Registration/ Reception area
Interview area
Telephone/Internet areas
Welfare area
Quiet areas
Toilet facilities
Food and refreshments
Childcare facilities
Basic first aid provisions
Office areas
Generic Considerations The following considerations should be made and addressed if possible for all types of
Emergency Assistance Centres:
Staffing/Catering – Voluntary Organisations offer their services if available. All
requests should be made through the Duty Emergency Planning Officer. (See
Voluntary Agencies Capabilities Document for reference).
Vulnerable People – Individuals may be present at the centre with additional needs
such as mobility difficulties, disabilities or specific medical needs, mental health
problems and children may require additional support than others. Communication
and cooperation between Social Care and Children’s Services is paramount to ensure
people that need additional support receive it.
Culture and Faith – The provision of a quiet room should be considered this can then
be used for Prayer by people from different faiths or for reflection and calming
following the incident. These needs usually become more pronounced after an
emergency and more people may require the use of a quiet room than in everyday life.
(see the Rest Centre Plan for detailed faith considerations.)
Languages – Provision to enable communication with all people should be attempted.
During an emergency people who would normally rely upon a family member or friend
to translate may have become separated. The Duty Emergency Planning Officer has
access to multi lingual literature and a Translation Service.
Finance – this area of consideration would not be dealt with inside an EAC; but needs
to be addressed ‘behind the scenes’; to look at funding for provisions used and any
recharge cost for facilities. (Appendix B)
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4.1 Survivor Reception Centre (SRC)
A SRC is a temporary but secure location close to the incident scene setup for survivors not
requiring acute hospital treatment, but who may have been slightly injured/contaminated or
otherwise involved in the event. This facility would be set up in the immediate aftermath of
the incident, usually by the police, offering short-term shelter and first aid, plus the collection
and recording of details for those involved and to:
provide immediate shelter/clothing (if needed) for persons who have been directly
involved in an emergency
allow documentation of the survivors
enable the interviewing of potential witnesses by the Police
provide first aid to those in need of it and not requiring hospitalisation
provide initial care and welfare support to survivors
organise onward travel where appropriate
provide information to survivors
Service Users
Those who have survived an emergency with no apparent physical injuries (or with only
minor injuries) may nonetheless be traumatised and be suffering from shock, anxiety or grief.
They will, therefore, need to be treated with care and sensitivity.
Activation and Set up
The SRC is likely to be activated for only a limited period of time, and then may cease
operation or migrate into a Rest Centre facility. The SRC will be set up immediately at a
location as near as practicably possible, to the incident site as determined by Police Silver at
the time of the emergency. The Police are responsible for opening a SRC, supported by the
Local Authority, in accordance with arrangements in the Emergency Plan. An SRC is likely
to be run initially by the Police (who will be first on the scene), until the Local Authority
becomes engaged in the response to provide additional support. The Police should deploy a
Documentation Team to the SRC who will pass on details gathered from survivors to the
Casualty Bureau. A Police Security Team should also be deployed to the SRC.
Location
The Police should consult with the Local Authority on a suitable location for the centre, as
the Local Authority may have access to such a building. Where it is not possible for the Local
Authority to provide a suitable location either within the proximity or timeframe, the Police will
have to consider other options.
Services and Needs
Within the SRC persons should be provided with whatever ‘psychological first aid’ is
appropriate to the situation. This is likely to include befriending and reassurance alongside
practical support, such as access to telephones to inform loved ones that they are safe and
well, and help with onward travel arrangements. Survivors may also require financial advice
services and changing, washing and toilet facilities.
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4.2 Rest Centre
A Rest/Reception Centre serves as a place of safety for those who are uninjured but have
been evacuated from, or are unable to return to, their home, work or other place.
It should be able to:
Provide immediate shelter for persons in need of emergency accommodation or
shelter following, or stemming from, an incident;
provide initial light refreshments for evacuees;
enable details of evacuees to be maintained in the centre for reference;
provide for the well being of the evacuees and to offer support services and
information on a wide range of welfare related subjects;
provide evacuees and survivors with updated information about the incident and its
possible effects upon them directly.
Activation and Set up
The responsibility for the set-up and running of Rest Centres lies with the Local Authority
(supported by voluntary agencies) who would activate arrangements as outlined in the Rest
Centre plan. The decision to set up a Rest Centre(s) may come from a request by the Police,
or it may be decided by the Local Authority that a Rest Centre is needed in incidents where
there is no police involvement.
Location
A Rest Centre is likely to be established further away from the incident site than an SRC, in
predetermined building locations, and would take up to 2-3 hours to set up. The Council
maintain a list of suitable buildings to be used as Rest Centres although these may not
always be available or be the most suitable building to use at the time of the emergency. In
prolonged incidents it is possible that evacuees may need to sleep overnight in the Rest
Centre if they are unable to find alternative accommodation, such as hotels, or make their
own arrangements to stay with family and friends.
Refer to Rest Centre Plan for more information.
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4.3 Family and Friends Reception Centre
Past emergencies have shown that in the immediate aftermath of an incident, many people
will travel to the scene in order to find family and friends that they believe to be involved. If
large numbers of people are converging on the scene, the Police may decide that it is
necessary to have a separate area where family and friends can gather to receive
information as it becomes available, to:
help reunite friends and relatives with survivors
provide a place for the Police to record missing persons enquiries and to collect
information that may aid their investigation
provide friends and relatives with a safe area to gather, away from media attention
provide friends and relatives with up-to-date and accurate information on the response
arrangements that have been put in place
provide access to practical and emotional support to those friends and relatives
affected
Activation and Set up
It is the responsibility of the Police to set up a Family and Friends Reception Centre as part
of the wider Disaster Victim Identification (DVI) process, in consultation with the Council.
A Family and Friends Reception Centre is likely to be set up within first 24 hours of the
incident occurring and should be a safe place for friends and relatives to gather where they
can receive up-to-date information about the situation and response.
Local authorities will have a key role in providing for the immediate practical and emotional
needs for friends and family members.
Location
A Family and Friends Reception Centre may be located near to the scene, in the area of the
community affected or near transport hubs such as major train station terminals.
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4.4 Humanitarian Assistance Centre (HAC)
A HAC differs from a Rest Centre or Family and Friends Reception Centre in that the latter
are generally used in the immediate aftermath of an incident with specific purposes, for
example, to reunite relatives with survivors or to provide temporary shelter. The HAC should
not interfere with the function of these or other initial support areas.
Instead it should have a broader remit and longer-term role whilst investigation and recovery
operations are taking place to:
Act as a focal point for humanitarian assistance to bereaved individuals and families,
survivors and impacted communities;
enable individuals and families to gain as much information as is currently available
about family members and friends involved in the incident;
enable the gathering of mass forensic samples in a timely manner, in order to enhance
the ability to identify loved ones quickly;
offer access to a range of facilities that will allow individuals, families and survivors to
make informed choices according to their needs;
provide a coherent multi-agency approach to humanitarian assistance in emergencies
that will minimise duplication;
Activation and Set up
It is the responsibility of Local Authorities to set up and run a HAC with support from the
Police and other agencies, following a request from the Gold Co-ordinating Group.
Location
Sites have been identified that could be used for this purpose (see Rest Centre Plan). Use
this information and the site-specific plans alongside any identified refit requirements in order
to make the site fit for purpose. A HAC is unlikely to be fit for purpose and open for use until
at least 72 hours after the incident. It should be set up with the primary aim of providing a
focal point in which information and humanitarian support can be provided to bereaved
families, survivors and other persons affected by a major incident. The centre may also be
used to enable investigating officers to obtain information and forensic samples from those
directly involved, to aid the identification process.
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4.5 Community Assistance Centres (CAC)
A CAC will provide advice and support to people affected by a major incident, including
support for the recovery of the community in a local setting.
Community Assistance Centres may be considered particularly where a Humanitarian
Assistance Centre has not been activated. It may be appropriate particularly when:
The impact is concentrated in a particular area. If a number of areas are affected
several such centres may be necessary.
People are affected significantly, and need advice and support, but the intensity of the
impact is of a lower order (for example, there are not mass fatalities) and/or the
number of people affected is smaller than would trigger a HAC.
Activation and Set up
Caution should be exercised before triggering both CACs and a HAC because of the
potential for dilution of resources. Establishing a CAC is a local authority responsibility,
accessing such support as is needed from other responding organisations.
Location
A CAC should be located in an appropriate publicly accessible building within easy reach of
the affected people. It may be appropriate to transition from Rest Centres or SRCs directly,
as the response develops; or it may be sensible to identify an alternative building.
Services
Besides the Local Authority, there are a number of agencies who may be appropriate to
attend, depending on circumstances:
Public Health may wish to send medical staff, if health monitoring is needed,
Voluntary agencies and faith responders may need to attend to provide emotional
support and care,
Insurance companies,
Benefits Service,
Registered Social Landlords, if social housing stock has been affected,
Police, if investigations are still ongoing.
In some cases, CAC’s may be an appropriate setting for public meetings and for community
engagement and consultation. Consideration should be given at the outset to how long a
CAC should remain open.
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4.6 Mass Vaccination Centres
As part of the strategy to protect the population of the UK from the impact of a health
incident that requires a local, regional or national vaccination response. Mass Vaccination
Centre/s will be established locally within the Borough, immunising large numbers of its
population. Each centre will be assessed as suitable in processing approximately 1,000 -
3,000 people per day, in response to an extremely large-scale local incident, or more likely a
regional, national or international outbreak. This may require vaccination or distribution of
prophylaxis to many of the population within a determined timescale.
NHS England (NHSE) and Public Health England (PHE) will act as lead organisations on the
activation of national and regional Mass Vaccination Centres, local Mass Vaccination may
be led by the Director of Public Health on behalf of NHSE and PHE if deemed appropriate.
Mass Vaccination Centre/s will be set-up to:
Deliver effective prophylaxis or vaccinations to the public affected within the Borough,
Ensure all treatments given is in accordance with consent outlined by lead
organisations,
Ensure full medical assessment is carried out on patients receiving treatment,
Give health advice as required,
Give a local picture to Regional and national bodies.
Activation and Set-up
The establishment, staffing and operation of local mass vaccination centres are key
elements in local delivery plans. The number of centres required to maintain an effective
mass vaccination/prophylaxis programme depends on a range of factors, including
geography, access and population density.
The nature of an epidemic or threat to the population will determine how the process of
vaccination takes place, however the process of immunising large numbers, will be similar
for each type of threat. Basic considerations and requirements in building, staffing, security
and health and safety issues have been defined by the regional framework.
Vaccination requirements for all staff working at a centre will be individually assessed,
depending on the particular infection. In a highly contagious/dangerous outbreak it may be
necessary to vaccinate staff prior to opening a centre. (This could delay centres from
opening). The current process of pre-vaccinating key health personnel in certain
circumstances will ensure an effective response in the initial stages.
Location
Mass Vaccination Centre/s will be located within either Local Authority buildings e.g. a
Leisure Centre or NHS buildings e.g. a Health Care Centre. A list of centres is outlined in the
Mass Vaccination Plan.
For further details please refer to the Mass Vaccination Plan
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4.7 Further Support
Temporary Mortuary Support In a major incident involving large numbers of fatalities, a Temporary Mortuary facility may
be required. Support may be required by the bereaved relatives that visit the Temporary
Mortuary to view their loved ones. It may also help to identify the needs of the people that
work in the Temporary Mortuary to ensure the delivery of appropriate support services.
In general, it should be anticipated that the Family Liaison Officer (FLO) assigned to a family
will identify the needs of those visiting the Mortuary, and will lead on ensuring these needs
are met. This may involve facilitating the attendance of Faith representatives.
(Refer to Temporary Mortuary Plan)
Inquest Support Where a major incident involves fatalities, inquest(s) will need to be held. Support should be
in place for the bereaved and those giving witness statements at the inquest. While the
bereaved are likely to be supported by Family Liaison Officers at the inquest, those
managing the venue where the inquest is being held, may want to consider some practical
issues, such as a quiet room.
Transitioning to Longer Term Assistance Centre
Activation and Set up
The decision to transition from a Humanitarian Assistance Centre to a longer term
Assistance Centre is a decision that must be taken early in the life of the HAC in order to
provide the time to manage the transition. In general, the need for a longer term Assistance
Centre is likely to be triggered by a likelihood of a large number of people with long-term or
persistent symptoms or problems resulting from the incident.
The Humanitarian Assistance Lead Officer will need to identify a Senior Officer to lead the
commissioning process. It is recommended that the commissioning process, and
subsequent contract management be undertaken in partnership with health services to
ensure ongoing links between the Assistance Centre and mainstream health services. It is
recognised that there will be a tension between the normal commissioning processes used
by the Council for the provision of social care, and the need for rapid outcomes. It will be
essential to effectively manage the risks relating to any foreshortened commissioning
process.
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5. Media and Communication
5.1 Communications Plan
The nature of an emergency that would activate an EAC would also activate the Council’s
Media Crisis Plan. It is vital that the media are kept fully informed of the Centre’s purpose
and facilities, whilst emphasising the need to avoid additional stress for those people already
traumatised by the event.
EAC Support
The Humanitarian Assistance Lead Officer will notify the council’s Press and PR to appoint
the Communications Officer to be dispatched on-site to deal with the media (consideration
should be given to a rota of officers from other agencies). The Communications Officer will
be responsible for:
being a focal point for enquiries from the media
liaising with the incident media briefing centre
fully briefing the HAC Management Group of media interest and reporting
Public Strategy
The name given to the EAC needs to be clearly linked to the emergency so information
about it can be easily found on the internet, or by using directory enquiries.
The HAC Management Group should consider producing daily briefings to the media to
make them aware of the arrangements and make the public aware of the location and
facilities available at the EAC.
Proactive publicity is central to the EAC’s ability to fulfil its role. Media monitoring should be
conducted in conjunction with West Midlands Police and steps taken to restore public
confidence and correct inaccuracies in reporting. One of the key aims for press officers, as
well as Police, security and reception staff is to support victims and their families in their
dealings with the media and to assist them in dealing with unwanted media attention.
Advanced work is required for:
Leaflets (of a general nature) informing the public of the EAC’s facilities and location;
production and distribution of relevant information leaflets,
website – outline, design and links to other sites providing pertinent information.
Communications should focus on core messages as follows:
This can be provided in a number of ways:
The purpose of the EAC Press releases
Onsite/offsite interviews
Regular media briefing at set times of the day
Tour of the site prior to opening (no media should be present while visitors are in attendance)
Websites
Included as a smaller message as part of a wider communication
Within the publicity component of communication
Social Networking
Location
How it is run
Who should visit the EAC
What visitors should bring with them
Getting there – travel information
What services are available
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5.2 Communicating with the Public
Newsletter, Website, Leaflets
It is likely to be particularly important to focus on continuing to outreach to affected people,
as the media interest turns away from the incident. It is likely to be necessary to take a low-
key approach to the dissemination of information. The key focus is to reach out to affected
people, who may often not have made contact with the core responding agencies directly.
An important consideration will be to identify the agencies and service providers who
affected may turn to in order to find support. These may include:
GPs,
Voluntary agencies such as Victim Support, Samaritans or CRUSE,
Faith groups,
Employers’ occupation health departments,
Schools education welfare advisers.
It is also likely that those most aware of an individual, who is suffering ‘invisibly’, are the
close friends and families of affected people. It is important to ensure these sorts of groups
have access to information, and that messages are targeted appropriately. Where
information has been directly captured by a responding agency, it may be appropriate to
make direct contact. This could be done by letter, which would be the least intrusive
method. Other means of contact should be undertaken with great care.
Information leaflets
Following a major incident information leaflets will be a useful tool to provide information and
signposting to further support. They should contain information about normal reactions,
when to seek further help, tips on dealing with crisis, and useful contact details. Attached in
Appendix C is a template leaflet.
When leaflets are issued the following issues need to be considered:
Who is the target audience: – i.e. were most of those affected commuters or children or football fans as this will influence where the best place is to make information available.
How will vulnerable communities be reached?
Format: – does the information need to be available in large print, Braille or different languages.
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Telephone Helpline There may be a need to establish a telephone support service where callers can seek advice
or discuss their reactions to the incident and any difficulties they may have. Callers may
also seek a range of simple practical information and advice connected with the incident. If
necessary, they can be referred to other sources of support. Dependent upon
circumstances, this may be managed by the Council, or by the British Red Cross (with
support from other voluntary agencies).
It is likely that a significant amount of the callers will require sign-posting to other services. It
is critically important therefore, to maintain close monitoring of the types of calls being taken,
and identify gaps in service provision and/or staff knowledge as soon as possible.
Helpline Checklists
decide on the type of helpline – Emotional Support or Information/Advice
decide on the capacity and opening hours
identify the location for the helpline
identify the staff for the helpline
prepare a briefing for staff
identify the Communications engineer and agree technical set-up
source equipment and supplies
identify who is responsible for publicising the helpline
design what information needs to be recorded from each call
Publicising the Helpline
Who is responsible for promoting the helpline?
Who is the target audience?
Where are they?
What language do they speak as a first language?
Are any special ‘groups’ particularly affected?
What is the announcement/advert for the helpline?
Where is the number being publicised? When? How?
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6. Recovery Phase
Recovery is a complex and long running process of rebuilding, restoring and rehabilitating
the community following an emergency. Recovery may take months or even years to
complete, as it aims to address the enduring human, physical, environmental, social and
economic consequences of an emergency.
The following processes and/or events may occur during the Recovery Phase of an
emergency:
Acts of Remembrance
Memorials and Anniversaries
Emergency/Disaster Appeals
Support Groups
Managing Messages of Condolences, and Gifts
Consultation and Engagement with the Public
Promoting Services
To address this complex process, long term recovery strategies and guidance is provided in
the Community Recovery Plan.
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7. Plan Activation
Trigger Points
It is likely to be appropriate to activate the plan for any incidents with a significant number of fatalities or potential traumatised survivors.
Alert Procedures
There are well established procedures for alerting Category One and Two, voluntary sector and faith responders about major incidents in the Borough These procedures should be followed. Standby Procedures
The Local Authority representative at the Strategic Coordinating Group will nominate a Humanitarian Assistance Lead Officer to co-ordinate the Humanitarian Response (usually a Director with responsibility for Adult Social Care). The Humanitarian Assistance Lead Officer will, on the advice of the Emergency Planning Officer and/or on the instruction of the Local Authority representative at the Strategic Co-ordinating Group, trigger the standby procedure.
Activation Procedures
The Humanitarian Assistance Lead Officer will, in consultation with the Local Authority
representative at the Strategic Coordinating Group, activate the Humanitarian Assistance
Plan. The decision to activate the EAC sits with the Strategic Co-ordinating Group. The
operation of the EAC would be controlled by the Local Authority. When Gold stands down,
the reporting line should be to the local authority led Incident Recovery Group.
Having considered the potential scale of the emergency the Strategic Co-ordinating Group
will make a decision on opening an EAC. This decision will draw heavily on the views of the
local authority where the EAC will be sited. Once the decision has been made, agencies
involved in setting up and supporting an EAC will call out their staff through their own call out
arrangements. Follow the Rest Centre Plan Activation Flowchart.
Actions:
Notifying the appropriate local authority managers responsible for the bereavement and psychosocial response;
Initiating the cascade to operational staff that may need to respond;
Contacting the Assistant Director of Public Health at the Primary Care Trust, the on-call director at the Mental Health Trust via the Assistant Director of Adult Services, and the Health Protection Agency;
Placing on standby voluntary sector agencies and faith responders;
Placing on standby other local authorities if required.
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Command and Control Management of the centre would be undertaken by the HAC Management Group. This
group will comprise of:
HAC Management Group Chair (Strategic/Senior Manager),
Reception and Registration,
Facilities Manager - Buildings/Fittings,
Facilities Manager ICT,
Information Manager,
Finance Manager,
Administration Manager,
Communications Manager,
Coroner's Officer,
Police Senior Representative,
Family Liaison Co-ordinator,
Voluntary Organisations Representative,
Welfare Support,
Childcare,
Health Representative,
Transport Organisations.
Depending on the nature of the emergency other organisations will be invited to join.
Overall responsibility for the management of the EAC rests with the Local Authority. The LA
will be assisted by other Category 1 and 2 responders and the voluntary & community
sector. However, in the event of a transportation incident it is likely that the transport
operator responsible will take primacy and open an EAC.
Closure
Closure of the EAC cannot be pre determined however an exit strategy will be decided by
the HAC Management Group in consultation with the Strategic Co-ordinating Group as soon
as the EAC is established.
The decision to close the EAC will be based on whether or not its objectives and purpose,
agreed at the outset, have been achieved. The possibilities of a phased closure, the
provision of a telephone helpline and website, or the transfer to an appropriate agency
should be considered. The nature and circumstances of the individual emergency will
determine whether these are appropriate measures.
Actions:
Deploy operational staff to Survivor Reception Centres/Rest Centres as required.
Confirm the activation of the plan with:
Primary Care Trust Mental Health Trust Health Protection Agency Voluntary Agencies Faith Responders Other Local Authorities Other relevant responders Prepare for further deployments (to A&E, Family and Friends Reception Centre)
Convene Humanitarian Assistance Steering Group
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8. Management Arrangements
Gold Coordinating Group
Overall strategic control of the response to a major emergency will be directed by the Gold
Coordinating Group. Within this group, the lead responsibility for the humanitarian response
will be with the Local Authority representative, usually the Chief Executive. The Gold Co-
ordinating Group during the response phase will make the transition to a Gold Recovery
Group or local equivalent during the response phase. (For further details see the Emergency
Plan.)
The Gold Co-ordinating Group responsibilities include:
Agreeing the overall recovery strategy (possibly supported by a Recovery
Management Team);
Making the decision to deploy key capabilities (e.g. Humanitarian Assistance Centre);
Agreeing the overall communications strategy.
Key groups supporting the Gold Co-ordinating Group:
Recovery Management Team (RMT): This team may be convened to make early
recommendations and decisions to support the recovery process in advance of the
transition to Recovery.
Scientific and Technical Advisory Team (STAT): May be convened to provide
advice to the Strategic Co-ordinating Group. This may include, for example, key
health advice that will required by humanitarian responders.
Humanitarian Assistance Lead Officer (HALO)
A Humanitarian Assistance Lead Officer will be nominated by the Gold Local Authority
representative at Gold Co-ordinating Group or the Chief Executive, to lead the Humanitarian
Response. This will typically be a Director responsible for Adult Social Care. This
Humanitarian Assistance Lead Officer will chair the Humanitarian Assistance Steering
Group, and ensure the attendance of appropriate representation. The Humanitarian
Steering Group will determine the appropriate approach for the Humanitarian Response, in
liaison with Gold Co-ordinating Group where necessary.
Guidance on determining who should be Humanitarian Assistance Lead Officer
Incident predominantly confined in impact to a
single borough/authority
The HALO should be drawn from that
borough/ authority
Incident spans two boroughs/authorities The HALO should be drawn from one
borough/ authority (other factors may
determine the choice)
The EAC Plan has been activated for an
emergency which has affected multiple
boroughs/authorities
The HALO should be drawn from the
borough/authority hosting the EAC
For a widespread emergency affecting very many
borough/authority (e.g. a regional flood event):- the
Humanitarian Assistance Lead Officer role may be
more consultative and direction-setting
The HALO may best be drawn from an
borough/authority with substantial
experience or willingness to undertake
the role
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Humanitarian Assistance Steering Group
The purpose of the Humanitarian Steering Group is to determine the direction of the
Humanitarian Assistance response, and to ensure coordination of the activities of the
responders involved.
Key responsibilities include:
Activation of the deployment of key capabilities;
Monitoring the performance of capabilities, and intervening to bolster the response
where necessary;
Ensuring that the needs of affected people are understood and met;
Initiating consultation with communities and individuals to ensure the response is
effective;
Coordinating the psychosocial and health aspects of the response, and ensuring that
effective pathways exist;
Ensuring effective mechanisms exist for sharing of information;
Ensuring effective promotion of services to affected people;
Financial control.
Suggested Humanitarian Steering Group members from the following organisations:
Humanitarian Assistance Lead Officer (Chair);
Senior Officer from West Midlands Police (e.g. Family Liaison Manager);
Assistant Director from Public Health;
Assistant Director from the Mental Health Trust;
Assistant Director from the LA Children’s Services;
Senior Information Management Officer (Local Authority);
Chair of the Humanitarian Assistance Centre Management Group (if activated);
HM Coroners Officer;
Representative from the Emergency Planning Unit (if required);
Senior Voluntary Sector Representative(s).
Humanitarian Steering Group meetings
Frequency and Timing
The Humanitarian Steering Group would be expected to meet frequently in the immediate
aftermath of an incident, but less often in later stages. In the initial stages meetings should
be at least daily. (If more than one meeting is held per day, it may be difficult to discharge
actions between meetings).
Meetings should be timed with regard to the Strategic Co-ordinating Group meetings to
enable the discharge of actions, and upward reporting.
Focus
Meetings should focus on managing the overall humanitarian response, in line with the
strategic direction from Strategic Co-ordinating Group/Gold. In practice this should focus on:
Setting objectives and monitoring outcomes
Information receiver / provider
Understanding user needs
Coordinating between agencies to provide a coherent response
Transitioning between phases
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Meetings should not be focussing on the detail of the operational response. This is the
responsibility of tactical responders managing individual capabilities deployed. However, the
meetings should be an opportunity to escalate issues, if needed. The meetings should, if
possible, avoid spending excessive time on sharing information on progress of the overall
response. The time required for this will be shortened by the timely provision of Situation
Reports.
Location
Meetings of the Humanitarian Steering Group will be held at a location determined by the
Chair. Consideration should be given to the logistical considerations of individuals required
to attend if they have a substantial role in managing operational elements of the response.
For example, it may be appropriate to hold meetings near to the EAC (if activated) to enable
the Chair of the HAC Management Group to attend.
Admin Support
The Chair of the Humanitarian Steering Group will be responsible for ensuring the provision
of the secretariat for the meetings. Draft minutes of meetings, confirming action points,
should be produced within 1 hour of the close of the meeting.
Critical Success Factors
A key role of the Humanitarian Steering Group will be to establish at the outset Critical
Success Factors for the Humanitarian Response. The Critical Success Factors should guide
the subsequent actions of the Humanitarian Steering Group and responders acting under
their direction. Where possible these should be SMART objectives (Specific, Measurable,
Achievable, Relevant and Time-bound).
The Critical Success Factors may focus on the following areas:
Numbers of affected people to whom a support is provided
The response meets the needs of affected people
Costs of the response are effectively managed
Working practices safeguard the welfare of staff
District Emergency Centre
The District Emergency Centre (DEC) for the lead borough should remain open throughout
the early stages of the response. The function of the DEC is to provide a hub for Local
Authority decision-making (Command) and information management (Control). The DEC
Manager must ensure production and dissemination of an appropriate and timely Situation
Report (SITREP), to the Chair of the Humanitarian Steering Group.
Welfare Coordinator
This officer will responsible for overseeing the initial deployments of staff to Rest Centres,
Reception Centres etc, and coordinating the local authority humanitarian response
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Information Management Officer
An Information Management Officer should be appointed by the Humanitarian Assistance
Lead Officer to oversee the collation, storage, maintenance and sharing of data in regard to
affected people. This officer would normally be an officer responsible for Information
Management with Adult Social Care Services. It may also be appropriate for this officer to
report on the numbers of people accessing services provided by the Humanitarian
Response. (See Appendix D for more on information handling)
Communications to other Local Authorities
An emergency in the Borough may affect residents, visitors and the transient population.
This may result in the involvement in the incident, of people from other Local Authority
boroughs, as well as people from further afield, including those who may be foreign
nationals.
The Humanitarian Steering Group must take a lead in ensuring effective communications
with other local authorities whose residents may have been affected. As information is
gathered about affected people, it will be important to notify the appropriate local authorities,
to enable the appropriate provision of services. An appropriate lead officer within that
authority should be sought to maintain on-going communication.
Communications with governments and families of foreign nationals would be led by the
Foreign and Commonwealth Office (FCO).
Initial communication will be the dissemination of SITREPS and Top Line Briefings through
the Regional Resilience Teams. Once these links have been established, information
should be shared by both sides on a regular basis about services available.
Transition and Exit Strategies
Key areas for the Humanitarian Steering Group to manage are the transition between
different capabilities (e.g. from Family and Friends Reception Centre’s to HAC’s), and the
exit strategy for the response as a whole. This is critical to ensure that affected people are
not ‘lost’ as the shape of response changes, and to ensure the response does not become
open-ended.
The exit strategy for the Humanitarian Response as a whole is an early priority, particularly
where the response is likely to be prolonged. A key element of the exit strategy is likely to
be the transition of humanitarian support into mainstream services.
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HAC Management Group
Although the Council will be responsible for chairing the HAC Management Group and
running the centre, there will be a range of other statutory organisations (e.g. Police Family
Liaison Officers) and voluntary agencies (e.g. British Red Cross) present who can provide
information and support for survivors and their relatives. This will include practical advice
such as compensation, benefits support, travel assistance and information on the
investigation process. It will also undertake befriending and listening services (including
those offered by voluntary agencies) that will enable those who wish to access further
support, the signposting to access these services.
All staff deployed by the Council and Voluntary Agencies to the EAC should be properly
trained and briefed on their role within the centre and that of others working alongside them.
This should include awareness of their remit and avoid attempting to provide support for
which they are not trained e.g. avoid formal counselling which is not appropriate immediately
after the incident.
There are likely to be two groups of Council staff deployed to the EAC; staff who are trained
to offer emotional support such as befriending and Benefits Advisors, both of which will carry
out their normal jobs in an unusual environment. Both groups will need to be thoroughly
briefed before working in the centre and should be conscious of the need to treat relatives,
friends and survivors with compassion and dignity throughout.
An EAC will remain open for as long its services are required. This is likely to be a number of
weeks or possibly months. The HAC Management Group should consider the exit
strategy for the centre from the outset.
The EAC will be supported by other means of support for survivors and relatives who are
unable to or do not wish to access the EAC itself. This should include a website and
telephone helpline that are able to signpost to the range of organisations and services that
are available to support those affected by the incident. Translation and interpretation
services also need to be available at the EAC.
Management Provisions
An outline of roles, numbers and skills required to open, manage and maintain an
Emergency Assistance Centre are detailed in Appendix E. Included with the Management
Provisions table is a template idea of the staff required and the necessary skills and
knowledge they would need to operate successfully. The list is not exhaustive and a gap
analysis style assessment should be made to ensure that the right staff are available for the
type of incident the EAC has been established to accommodate; any unnecessary roles can
be removed and reinstated as required – the staff could then be reallocated into roles that
are required.
Management and Staffing
All staff will have been previously identified and given appropriate training. Staff dealing with
children and vulnerable people will hold a DBS check (previously CRB).
Call out arrangements and shift patterns will be the responsibility of centre management,
depending on the nature of the emergency.
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Security – Immediate and Longer Term
It is essential that a full risk assessment is conducted by the EAC Management Group in
consultation with the Strategic Co-ordinating Group and that this is reviewed on a regular
basis in order to establish an appropriate security strategy. The level of security applied to
the EAC will depend on the nature of the emergency and for this reason, cannot be
predetermined.
The minimum level of security which will be applied to the EAC will, however, ensure the
registration of all persons entering and recording of those leaving. The prime role of this
function is to prevent unauthorised access (e.g. Media).
In the initial stages, Police Officers will be employed to carry out the security functions,
however, based on the ongoing risk assessments the HAC Management Group may need to
consider the employment of private security companies or other arrangements.
In some circumstances (i.e. terrorist incident), it may be deemed necessary to employ the
use of ‘scanning arches’, these can be obtained from the Police Scientific Development
Branch. The use of police search trained officers may also be considered by the HAC
Management Group but a balance must be reached between the nature of the emergency
and security measures employed within the EAC.
There should be no use of digital recording devices, unless authorised by the HAC
Management Group.
Dependent upon the agreed security strategy, consideration should be given to a form of ID
such as a passport or driving licence being shown. In addition basic questions may be asked
to establish the purpose of their visit. In some circumstances additional questions may be
posed by the Police Senior Investigating Officer (SIO) to assist the investigation or
identification procedures.
Staff Welfare
Health and safety is paramount along with the need to provide appropriate clothing where
applicable, and safe and comfortable conditions. The welfare of staff and their psychological
needs are as important as those for the victims and their family and friends. Volunteering
staff, no matter how skilled, should not be encouraged to assist if they have had a recent
bereavement or traumatic event in their lives.
Careful consideration must be given to shift patterns and staff briefings, the timescales of
which should be decided by the HAC Management Group, and the provision of a separate
room where staff can take regular breaks and relax in comfort away from the demands of the
EAC. The HAC Management Group may need to consider assistance to key staff that have
personal commitments which impinge on their time and would cause them concern.
Employers have a duty of care to staff that have experienced stress in the workplace. They
should ensure that workloads of staff that have been working in the EAC are managed in
their absence, to ensure that on their return to normal working practice they are not faced
with unreasonable demands.
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9. Roles and Responsibilities
The responsibilities outlined below are specifically focussed upon the consolidation and
recovery phases of the incident. These are based on the information contained within the
National Recovery Guidance Template and Voluntary Agencies Capabilities Document.
Task Sheets (Appendix F) outline specific roles within an EAC.
The Council will:
Take the lead role in the recovery phase of emergencies;
lead on support to the local community, working with community groups and residents;
deal with any highways issues (in conjunction with the Highways Agency as required)
such as road closures, clean up;
implement, with the support from other agencies, a Communications Strategy;
deal with the implications of any school closures or school children that have been
affected by the emergency;
provide Environmental Health advice;
lead the waste management for the recovery process including sourcing specialist
contractors to dispose of toxic waste;
co-ordinate support from the voluntary agencies;
co-ordinate local political involvement;
work with utilities suppliers to co-ordinate the restoration of the utilities services;
provide alternative accommodation for displaced persons including:
provide financial assistance for food, clothing, toiletries,
where appropriate arrange for child or elder care,
will work closely with health agencies and relevant organisations in response planning;
will assess the medium and longer term social and emotional impact on the community
affected and consider what long term response is required;
ensure that services meet the emotional needs, including those of children;
provide practical advice and guidance, e.g. accommodation and financial issues;
refer on to appropriate social care, health, housing and other services.
Director of Public Health will:
provide support, advice and leadership to the local community on health aspects of an
incident.
Specific responsibilities within an Emergency Assistance Centre include:
Establishing and meeting the costs of implementing and running an EAC;
identifying suitable and fit-for-purpose venues for an EAC;
ensuring that venues comply with all Health and Safety legislation;
managing the day-to-day running of an EAC;
working closely with health care agencies and other relevant organisations in all
aspects of emergency planning and response;
co-ordinate the provision of social care and welfare support to the community;
lead in establishing key humanitarian assistance facilities;
preparing communications strategies to publicise venue including street signage;
writing, testing and exercising plans in relation to set up and resourcing of each
designated venue.
35
National Health Service will:
Clinical Commissioning Groups will:
Co-ordinate with providers on primary care, community and mental health role during
the recovery stage;
Liaise with providers (Acute Trusts, WIC and GP OOH) to provide care and advice to
evacuees, survivors and relatives, including replacement medication
establish with DPH the local authority facilities for mass distribution of counter-
measures, for example vaccinations and antibiotics;
coordinate with DPH, NCB AT and PHE to support screening, epidemiology and long
term assessment and management of the health effects of an incident;
liaise with local Providers, GP’s and hospital services across the Borough, National
Commissioning Boards National Team will liaise throughout England;
provide other practical help and/or advice as appropriate;
maintain liaison with and co-ordinate the response with the NCB AT, DPH and PHE;
provide guidance on best practice and sources of information.
Mental Health Trusts and Social Services will:
Co-ordinate provision of immediate health care;
co-ordinate and inform primary care services and anticipate presentation/demand on
services in the immediate aftermath as part of their Surge Plan;
provide information and reassurance;
co-ordinate resources to respond to acute reactions to trauma, escalation of mental
illness in existing client group, and monitor longer term trauma responses in people
affected by the event.
Public Health England will:
Agree local lead through either PHE Centre or DPH to provide impartial expert advice
on health protection and provide specialist health protection services;
respond to health hazards and emergencies caused by infectious disease, hazardous
chemicals, poisons or radiation;
support and advise other organisations with a health protection role in line with DPH
locally.
The Coroner’s Officer will:
Provide advice and information to bereaved;
liaise with Family Liaison Officers;
liaise with other organisations.
West Midlands Fire Service will:
Provide the use of specialist equipment during the recovery phase;
provide professional advice on Fire and Rescue issues;
provide a long term urban search and rescue capacity if required.
36
West Midlands Police will:
Ensure that the Recovery Coordinating Group (RCG) is convened as early as possible
during the actual response phase to an emergency/major incident;
be represented at the local level on the RCG in order to ensure that local issues can
be addressed with foreknowledge of particular areas and issues;
offer managerial guidance with respect to, or act as conduit for, the other emergency
services should they not be present at the RCG;
give feedback to the RCG regarding implications for the police service that any
proposed recovery strategy or measure may entail, in particular with regards to:
body recovery, identification and forensic examinations,
security issues,
traffic management at funerals, memorial services,
public order at funerals, memorial services.
if a temporary mortuary has been established, a Senior Identification Manager (SIM)
may join the RCG or should be liaised with;
provide security within any EAC that is established.
Family Liaison Officers
The involvement of Police Family Liaison Officers (FLO) will depend on the nature and
extent of the incident.
If FLO’s are deployed, a Family Liaison Manager may join the RCG (or contact should
be sought) in order to liaise closely with the RCG regarding investigative and individual
recovery issues, such as funerals;
FLO’s will work to the strategy set by the SIM. Through the Family Liaison Advisory
Team or Family Liaison Coordinator (FLC), the SIM will appoint FLO’s to the
appropriately identified family. The FLO will remain the single point of contact between
the SIM, the family and specialist support services.
The FLO’s responsibilities include:
Gathering information and evidence in a compassionate manner from family and
friends regarding details of potential victims or missing persons (to contribute to early
identification or repatriation);
providing help and advice regarding the investigation and criminal justice system;
providing communication between the investigation team, family and support services;
keeping the family informed of any investigation or recovery operation developments;
recording all contact with the family, reason for contact and outcomes in the FLO log;
establishing close liaison with other relevant agencies and partners within the EAC;
Contribute to a co-ordinated response of the family’s needs, ensuring they are given
information about support agencies in accordance with their wishes.
The Police FLC, in consultation with the Senior Investigation Officer (SIO) and SIM will
define and develop a strategy, taking into consideration the family’s needs; if necessary
involving the activation of Local Authority services and voluntary groups . The aim is to
achieve a partnership approach with the family and those who may be acting on their behalf.
The family may require support with a range of issues: the trauma of bereavement, funeral
arrangements, financial or legal advice, health or social services. Volunteers work with FLOs
to provide these services and coordinate family referrals to long-term support services.
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Foreign & Commonwealth Office (FCO)
Provide consular assistance to British Nationals overseas following an incident abroad;
deploy a Rapid Deployment Team to assist consular staff and assist evacuation of
British nationals where required;
provide a central contact and information point for all records and data relating to
persons who have, or are believed to have been, involved in an incident overseas;
liaise with the Casualty Bureau (where opened) to ensure joined up information
sharing on those affected;
lead in the repatriation of bodies of British Nationals following deaths overseas.
Central Office of Information (COI) News and PR
COI will assist all responders to obtain the latest and best information;
gather information for national media briefings.
DCLG RED – Resilience and Emergencies Division
RED will:
Liaise with central government departments in relation to the incident;
provide advice and support to local responders during the recovery phase, including
assisting with the co-ordination of recovery from a regional/ widespread incident if
required;
provide assistance with media relations.
Health and Safety Executive
The Health and Safety Executive will:
Protect people’s health and safety by ensuring that risks in the workplace are properly
controlled;
regulate health and safety in nuclear installations, mines, factories, farms, hospitals,
schools, offshore gas and oil installations, and other workplaces;
regulate the safety of the gas grid, railway safety, and many other aspects of the
protection of both workers and the public;
assist in supporting workplace health and safety of other responding agencies,
including the emergency services;
provide relevant specialist, technical or CBRN advice to support recovery from
emergencies, especially, but not exclusively, those events that involve major hazard
industrial sites.
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National Rail (Care Teams)
Will provide information and practical assistance to those involved and those affected
by the incident;
will establish and maintain close contact with police FLOs;
will work alongside and seek to complement the efforts of other responding agencies.
Primary among these will be police FLOs, with whom early and close contact will be
established, along with hospital staff, local authorities and voluntary sector and faith
communities;
will support communication infrastructure with family and friends of those involved in
the incident (by the provision of telephones and generally providing communication
support, internet access, phone calls);
will make arrangements and, where appropriate, pay for travel for family and friends,
including taxi fares, overseas flights;
will arrange and, where appropriate, pay for accommodation for family and friends;
may provide financial assistance for food, clothing, toiletries;
will arrange to meet family and friends from locations within the transport
infrastructure;
may arrange and, where appropriate, pay for child or elder care;
will assist in the tracing of luggage and other items of property lost as a result of
incidents;
will respond to any other needs and concerns which become apparent and generally
attempting to help out wherever possible;
transport company staff will not provide any form of counselling
services but would help to put individuals in contact with the appropriate specialists
agency where appropriate.
UK Airlines
Following an aviation incident in the UK that involves UK airlines, they:
Will provide information and practical assistance to those involved and those affected
by the incident;
establish a telephone helpline for the relatives of those that may be affected;
will establish and maintain close contact with police FLOs;
will support communication infrastructure with family and friends of those involved in
the incident (by the provision of telephones and generally providing communication
support, internet access, phone calls);
provide representatives to attend Gold Command meetings;
assist in the establishment and operation of a Humanitarian Assistance Centre (where
required);
will make arrangements and, where appropriate, pay for travel for family and friends,
including taxi fares, overseas flights;
will arrange and, where appropriate, pay for accommodation for family and friends;
may provide financial assistance for food and clothing.
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Voluntary Sector The nature, range and scale of services offered by the voluntary sector may alter depending
upon the context of the emergency situation at the time. The voluntary sector can provide
support in a number of generic areas specifically:
Welfare,
social and psychological aftercare,
medical support,
search & rescue,
transport,
communications,
documentation,
training & exercising.
British Red Cross
Provide emotional and practical support;
provide access to a range of practical support services;
offer therapeutic care (relaxing massages) for clients and staff;
may provide first aid for both clients and staff.
The Salvation Army
Co-ordinate the provision of faith support and accessing appropriate faith leaders;
listen and provide emotional support;
provide access to a range of practical support services.
Victim Support
Provide emotional and practical support to those affected by crime and other
emergencies;
offer advocacy and help with navigating the criminal justice system;
provide information on the services provided by other agencies and referrals.
Cruse Bereavement Care
Listen and provide ongoing emotion support;
provide bereavement and contact information;
provide access to UK local branches for ongoing support.
St John Ambulance
First aid and healthcare;
medical support to ambulance service / hospitals / mortuaries.
Samaritans
Listen and provide ongoing emotional support;
provide bereavement and contact information.
Disaster Action
Offers support and guidance to survivors and the bereaved;
guidance and consultation for responding agencies.
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Faith Groups
Faith Groups have a role in:
Recognising the spiritual dimension of life and death;
a ministry of care and comfort to relatives and others caught up in the disaster;
to support others as requested by Family Liaison Officers;
providing a ministry with Hospital Chaplains in hospitals;
providing a ministry at temporary mortuary facilities;
to organise local church services as required by the community;
to assist with the organisation of memorial services;
engage with partner agencies to support community cohesion work.
Citizens Advice Bureau
The CAB will provide free information and advice to help people resolve their legal,
monetary and other problems.
Insurance Industry Following an emergency, the insurance industry will provide the following through the
Association of British Insurers (ABI):
Facts and figures about who and what is covered by household and business
insurance;
specific guidance on the issues likely to arise after a flood or terrorist event;
details of the protocol between the insurance industry, the police and other emergency
responders on communication and co-operation after a major event;
key contact details of the organisations that represent the insurance industry.
Criminal Injuries Compensation Authority
Provide advice and information with regard to claims.
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Business Disruption The agencies listed below should be consulted in incidents where there has been a
significant impact upon local businesses in the community, particularly to support small and
medium size enterprises
Business Link
Business Link provides information, advice and support to businesses and individuals.
Rather than providing all the advice and help itself, it fast-tracks customers to the expert help
they need.
Business Link will fast-track customers to support and advice on the following:
Start Ups,
Finance and Grants,
Taxes,
Employing people,
Health and Safety,
IT and e-commerce,
Sales and Marketing,
International Trade,
Business Continuity and Disaster Recovery.
Chamber of Commerce
The British Chamber of Commerce is a private organisation with a paid membership. It is
not, therefore, a recognised responder. However, members of the Chamber of Commerce
can receive the following support:
Making new business contacts,
legal expenses,
insurance,
business helpline,
HR Advice,
Health & Safety service,
payment services,
risk insurance.
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Appendix B Finance
Particular attention should be paid to issues of income and expenditure. Consideration
should be given to:
The usual procurement and Purchasing Policies being adopted
Miscellaneous expenditure: miscellaneous expenditure incurred by staff can be
reimbursed. This would be administered by the HAC Finance Manager. The size of
float maintained would be determined by the Management Team, dependent upon the
size, severity and expected duration of the crisis. Claims must be properly authorised
and submitted separately from routine expenditure
Payment: a decision is required, in the context of the emergency, to either operate
through the local authority’s usual system or to establish a separate system. It is
anticipated that existing systems would be used in most instances
Travel Expenses: consideration will also have to be given to reimburse local authority
and other agency staff for any additional travelling involved in staffing the EAC. In
accordance with their employing organisations procedures, it is expected that each
organisation would meet its own staff expenditure. Consideration is to be given to
reimbursing voluntary agency staff, following accordance with established routines,
e.g. when attending and staffing emergency rest centres.
All items of expenditure in relation to the emergency are to be separately coded, in
accordance with local authority financial regulations
Audit: to be established although again usual local authority procedures would be
followed
Appeal fund: in an emergency it is possible that an appeal fund would be set up to
assist victims. This would be done in accordance with local authority emergency
planning procedures; otherwise, reference should be made to the British Red Cross
Disaster Appeal Scheme, which is a comprehensive guide in this area.
In terms of reclaiming costs incurred, there is no automatic right to claim under the Bellwin
Scheme. Ministers are empowered to decide whether or not to activate a scheme after
considering the circumstances of each case. The guidance indicates that it would be unlikely
that Bellwin would be applied in the case of terrorist incidents.
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Appendix C Template Emergency Information Leaflets
If you have been involved in a major incident or event, you may find this leaflet helpful. It describes how you might feel in the days and months after the incident and has information about how to obtain help, if you need it. After an incident Often, major events make us feel that that life is unfair and unsafe. But, looking back afterwards and despite our feelings and problems at the time, it is clear that most people do cope well and recover without long-term problems. What you have seen and heard is likely to have an effect on you, even if you have not been injured. Coping can be difficult. Everyone is different and each person has his or her own feelings afterwards. What has happened can cause strong feelings, but, usually, they settle in time. How you might be affected Major events are shocking and some of them can be overwhelming. After any major event, it is normal to have feelings and other experiences that may continue for some weeks. People who are directly involved, or who lose loved ones are, are the people who are likely to be most affected. However, witnesses, friends and relatives may have reactions too.
Immediately afterwards, you might feel:
Stunned, dazed or numb;
cut off from what is going on around you;
unable to accept what has happened;
that it hasn’t really happened. Usually, these feelings fade and others may take their place in the hours or days afterwards.
In the following few weeks, you might experience:
Tears and sadness,
Fear,
Anxiety,
numbness or dreaminess,
unpleasant memories about the event,
problems with your concentration,
difficulties with your memory,
difficulties with sleeping, nightmares and tiredness,
feeling less confident or, sometimes, helpless,
reduced energy,
feeling angry or irritable,
reduced appetite,
guilt about the incident,
headaches and other aches and pains,
feelings of reluctance to discuss the event or you wish to talk about it all the time,
wanting to avoid people, places or activities that remind you of the event (this might include travelling on public transport),
elation about surviving.
Children and young people are as likely to be affected as adults and they may have similar
experiences. Often, they become unsettled and more aggressive or fearful and it is usual for
them to be more clingy and demanding. Also, they may 'replay' the event in their games.
These reactions are understandable and, usually, reduce gradually over time. Parents can
help their children by providing both information and reassurance. Like adults, children cope
surprisingly well in the longer-term.
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What can I do that is helpful? You should:
Take each day at a time;
do things that make you feel safe and secure;
be patient with yourself; it may take weeks or months to feel that you and your life are back to normal;
try to re-establish your usual routines such as going to work or school;
spend time with family, friends, and others who can help you through this difficult time;
give reassurance to children to help them feel safe, talk about their fears and worries;
take good care of yourself physically; eat well, exercise regularly, reduce alcohol and drug use and get enough sleep;
talk it over when you are ready, but, don't worry if you get upset or cry while you think or talk about what happened;
take extra care; after a major incident, people are more likely to have accidents.
What isn’t helpful? You should not:
Bottle up your feelings; let yourself talk when you feel ready;
turn to alcohol or drugs; while they can numb your feelings, they can also stop you from coming to terms with what has happened or cause more problems later.
Do I need professional help? Most people who have encountered a major incident find that they get better over time. However, if you are still having difficulties after a month, you may need some help. The same advice applies to your children; they, too, may benefit from help if their feelings and behaviour are a worry to you a month after the event. It is helpful to seek advice if this is the case. Going to school may be very helpful to children and young people because it re-establishes routines and brings them into contact with friends.
What professional help can I expect? Advice, help, and treatment aim to enable adults, young people and children to come to terms with an event, by talking about their feelings and learning to cope better. Sometimes, medication is helpful.
Where do I find help? [INSERT LOCAL INFORMATION HERE] Speak to your family doctor (you could take this leaflet along) or contact:
NHS Direct on 0845 4647 (24 hours), www.nhsdirect.nhs.uk Other support groups and caring organisations you may find helpful include:
The Samaritans – Offers a 24-hour helpline for those in crisis. Tel: 08457 909090 www.samaritans.org.uk
Cruse Bereavement Care – Offers counselling, advice and support throughout the UK. Tel: 0870 167 1677 (Monday-Friday 9.30am - 5pm) www.crusebereavementcare.org.uk
Disaster Action – Provides support and guidance to those people who are affected by disasters. Tel: 01483 799 066 www.disasteraction.org.uk
Assist Trauma Care – Offers telephone counselling and support to individuals and families in the aftermath of trauma. Tel: 01788 560800 (Helpline).
For useful information on coping with trauma, see the following websites:
www.istss.org
www.rcpsych.ac.uk/info/index.htm
www.uktrauma.org.uk
[INSERT NAME OF INCIDENT HERE]
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If you are worried about a loved one:
Casualty Bureau: Please call the bureau on [XXXX] to report someone
missing. Upon calling, you will be given a unique reference number, which
you should quote each time you call. The number is available 24 hours a
day.
Please note, the Casualty Bureau only records information and is not able
to give information out about specific cases.
For more help and information:
Family and Friends Reception Centre: The centre is at XX and provides
an area for those concerned about loved ones to talk to the Police and get
further information and advice about the incident.
Survivors Reception Centre: The centre is at XX and provides an area
for all those directly affected by the incident to talk to support
organisations.
NHS Direct: Health advice is available through the 24 hour helpline on
0845 4647.
Other sources of advice:
British Red Cross - www.redcross.org.uk – has trained volunteers
on standby to offer practical support and comfort to people affected
by tragedies. Its UK switchboard is 0870 170 7000.
Disaster Action - www.disasteraction.org.uk - All members of
Disaster Action have themselves been affected by major disasters.
The website provides advice, information and contact details for
further help – Disaster Action does not run a 24 hour phone line, but
there is always an answering service.
For longer term help from Government:
The Department for Culture, Media and Sport has responsibility within
the Government for co-ordinating support to UK victims of major disasters.
If you are having difficulty over the coming days and weeks accessing any
support services or if you have any further questions about the help that
may be available, please contact the Department. Write to the
Humanitarian Assistance Unit, DCMS, 2-4 Cockspur Street, London
SW1Y 5DH, email [email protected] or ring 020 7211 6200 and ask
to speak to someone in the Unit.
The Department will need your name and address in order to offer ongoing
information and support. Please let them know if you would prefer them
not to keep these details.
Longer term care
Counselling is available through the NHS. Most people who have
encountered a traumatic event find their symptoms subside over time. If
symptoms do not improve after 4 - 6 weeks and continue to concern you,
please contact your local GP.
If this disaster has left you needing additional financial support, or you
would like to know about local support services, your Local Authority
social services can provide advice.
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Appendix D Information Management
Information Gathering
Information about affected people will be gathered at various stages of the response. Large
amounts of ‘raw’ data will be collected in the initial response, and this is very likely to be
incomplete, and potentially inaccurate. Particular problems have been experienced in past
emergencies from information gathered from people who are in shock at the time. As the
incident stabilises and moves towards the recovery stage, the likelihood is that data
collection about affected people is likely to be easier to organise and conduct effectively.
Information will be gathered by:
The Police via witness statements, Casualty Bureau and during victim identification,
Hospitals, as people are admitted, and as friends and family members visit,
Local Authorities staffing Reception Centres and Rest Centres,
Agencies providing Helplines and other support, including transport operators,
insurance companies, employers.
Wherever possible, sufficient information for identification of, and subsequent contact with
the affected person should be recorded. This should be passed to the Council at the earliest
reasonable opportunity, subject to genuine operational constraints. However, there should
be an assumption on all sides that information should be shared between Category
One responders. The Council will, at the outset, establish a master list of affected people
that services may need to be provided to. Initially, this may just be very basic details (name,
address, date of birth, contact details etc).
Information Storage and Management
Information about affected people should be treated as highly confidential. Information
security must be a consideration throughout, in accordance with the authorities Data
Protection Policies. Recognition of that information gathered in the response phase may be
inaccurate or partial. Where reasonably possible, and subject to relevant legislation, the
Council will work to ensure the accuracy of the information.
Over time, and subject to need, there may be benefit in developing more detailed information
about the “case history” of services provided, concerns and issues. A range of solutions may
be appropriate to the circumstances, from a simple spreadsheet list, to creating records on
the Authorities social care database. It is very important to ensure that information provided
by affected people is kept up-to-date, to avoid repetition of questions as people access
services over time.
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Information Sharing
Sharing information about affected people will be vital to a number of aspects of the
response:
Criminal Investigation,
Victim Identification,
Humanitarian Assistance,
There should be a presumption to share, rather than the reverse.
For further information, refer to the Cabinet Office publication (2007):
Data Protection and Sharing – Guidance for Emergency Planners and Responders
The sharing of information must be undertaken as securely as reasonably possible. There
are a number of options that may be considered. In the short term, secure email systems
are available which can be used to share data files between responders. The development
of a national multi-agency extranet may supersede the need for such systems.
Agencies should establish what information they will need, and how frequently this should be
updated. The Humanitarian Assistance Lead Officer should assign an Information
Management Officer to ensure that appropriate mechanisms are in place to store and pass
information between agencies.
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Appendix E EAC Management Provisions
Role Numbers and
source
Skills and knowledge required
Humanitarian
Assistance Lead
Officer
1 Strategic management skills Awareness of overall civil protection
principles and good practice in Humanitarian Response
Thorough understanding of social care principles and practice
Welfare Coordinator 2 Understanding of civil protection principles and local response arrangements
Thorough understanding of social care principles and practice
Rest Centre staff 60 Max Support from WRVS
and others
Understanding of basics of Emergency Planning and role of rest centres
Reception Centre staff 20 Max Support from British
Red Cross and
Salvation Army
As above but aware of needs of survivors and the bereaved
EAC Staff : General 20 Max Support from British
Red Cross and
Salvation Army
As above but understanding of agencies operating in the EAC, and how to access support
EAC Staff: Specific
advisers
Various agencies –
numbers as required
Role-specific knowledge Aware of needs of survivors and the
bereaved
Outreach Staff / “Away
Team”
Suggested 10 Understanding social care principles and practice
Ability to undertake the assessment of needs of affected people
Awareness of overall civil protection principles and good practice in Humanitarian Response
Information Manager 1 Information Management expertise
Family Liaison Officers Police – supported
by other forces as
needed
Role specific knowledge. Awareness of other agencies involved in
the response
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Appendix F Task Sheets
TASK SHEET A
HAC Management Group Chair
Recommended seniority and organisation:
Local Authority Strategic/Senior Manager/Head of Service/ Assistant Director or equivalent
Role:
Overall co-ordination of the Centre
Tasks:
Establish a Management Group
Arrange and chair regular meetings of the Management Group (at least twice daily initially) to discuss the operation of the Centre
Refer to suggested Management Group Agenda at Appendix 6
Appoint minute taker
Appoint log keeper
Determine the facilities and services required at the Centre both short-term and longer term
Determine the requirement for access to the Centre (Opening hours will need to be established that are convenient for those visiting, which will almost certainly require the Centre to be open longer that usual office hours. Initially, the EAC should consider and be prepared to open for 24 hours a day, to be reviewed at the discretion of the HAC Management Group.)
Conduct a risk assessment in consultation with the Strategic Co-ordinating Group to determine a security plan for the Centre
Disseminate agreed security strategy and review periodically
Liaise with Multi-Agency Strategic Co-ordinating Group and/or the Recovery Working Group
Identify and agree overall resource levels and authorise financial expenditure as appropriate for the operation of the Centre, keeping accurate records for audit purposes
Review the LRF Information Sharing Protocol to ensure data protection principles are adhered to in relation to personal information
Determine strategy for scaling down and/or closure of the Centre in consultation with the Strategic Co-ordinating Group
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TASK SHEET B
Humanitarian Assistance Centre Manager
Recommended seniority and organisation:
Senior Manager/Head of Service – Local Authority Social Care
Role:
Responsible to the Centre Chair for the day to day operation of the Centre
Tasks:
Setting up the EAC
Establish the functions necessary to meet the information needs of people
Ensure all staff and volunteers are briefed on their arrival at the Centre people affected by the emergency
Arrange for signs to be erected
Management
Implement strategy as determined by the Centre Chair
Ensure the Centre is adequately staffed at all times
Ensure function Supervisors direct requests for additional resources, supplies or services through the Centre Manager
Review the availability of the resources at the Centre and inform the Centre Chair of any additional requirements
Keep Centre Chair regularly updated on actions taken
Maintain a log of significant events whilst the Centre is in operation
Carry out fire prevention and Health and Safety checks in liaison with site operator
Ensure all staff/volunteers are familiar with fire precautions
Liaise with Information Manager to publicise information about opening hours, car parking, public transport access, level of identification required by visitors etc.
Ensure support to ensure that faith and customs are respected as far as possible, allowing for the fact that both post mortem and the release of bodies within timescales by the coroner may contravene beliefs and customs in some circumstances
Communications
Ensure that adequate communications are available for the management of the Centre
Ensure access to interpretation facilities for people affected who do not speak English as their first language and other specialist support services as appropriate
Closing down
Arrange for the Centre to be returned to its normal use
Arrange for all documentation, Log Sheets, Registration, De-Registration forms etc to be collated
Attend de-briefings as required
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TASK SHEET C
Reception and Registration
Recommended seniority and organisation:
Lead Local Authority supported by Voluntary & Community Sector. In certain circumstances,
it may be necessary to employ a private security company to assist.
Role:
Manage access to the Centre to staff and visitors and provide initial information about
resources available within the Centre
Tasks:
Record details of people attending the centre to ensure compliance with Health and Safety and fire regulations, to enable security checks to be carried out as required, and to be used in post emergency evaluation of the use of the Centre
Ensure that visitors provide their name, address and date of birth, purpose of the visit and category (e.g. victim, relative, friend, etc). Dependent upon the agreed security strategy, ID such as a passport or driving licence may also be required
Anyone wishing to visit the Centre for purposes other than support (e.g. news media representatives) must be referred to the HAC Management Group
Conduct physical security checks on people visiting the Centre as required by the Centre Security Strategy
Depending on the nature of the emergency and in certain circumstances, details of persons attending the EAC may be checked against the police PNC.
In some circumstances additional questions may be asked as required by the Police Senior Investigating Officer (SIO) or Senior Identification Manager (SIM) to assist the investigation or identification procedures
In some circumstances scanning arches may be required
The use of police search trained officers may also be considered
Any person gaining unauthorised access to the premises must be removed, by trained staff, immediately
Provide layout plan of the Centre and details of information and resources available within the centre and assist visitors with general queries
Digital recording devices including mobile phones will not be allowed into the Centre unless authorised by the Management Group
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TASK SHEET D
Facilities Manager – Buildings / Fittings
Recommended seniority and organisation:
Local Authority – Property or Procurement Service Manager
Role:
Responsible for the building, fixtures and fittings, and on-going modifications to fit evolving
requirements. Whilst there is an emphasis on getting the facility available for the public, it
should only open when fit-for-purpose and ready. It is expected that the Centre would open
48 hours post emergency, if reasonably practicable
Tasks:
In conjunction with the Management Group, determine the facilities and services required at the Centre both short-term and longer
Co-ordinate the work required to make physical alterations, equip and furnish the centre
Undertake Site Risk Assessment
Liaise with the Management Group regarding resource implications
Liaise with the IT and Communications Manager
TASK SHEET E
Facilities Manager - IT and Communications
Recommended seniority and organisation:
Local Authority – IT Services
Role:
Responsible for installation and operation of IT and telecommunications equipment, including
connection to the Internet and to the LA network
Tasks:
In conjunction with the Management Group, determine the communication facilities and services required at the Centre both short-term and longer
Co-ordinate the work required to establish IT and communications resources
Liaise with the Management Group regarding resource implications
Liaise with the Facilities Manager – Buildings / Fittings
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TASK SHEET F
HAC Information Manager
Recommended seniority and organisation:
Appointed by the Strategic Co-ordinating Group
Role:
Co-ordination of information provision, both physical and virtual, and sign-posting to sources
of additional information
Tasks:
In conjunction with the Management Group, determine what information resources and personnel should be present at the Centre
Provide Reception/Registration with layout plan of the Centre and details of the information resources available
Publicise information about opening hours, car parking, public transport access, level of identification required by visitors etc.
Liaise with the Management Group to obtain up-to-date information on the emergency
Co-ordinate with any other centres established as part of the emergency
Establish and maintain an Information Point with:
Maps/details of local amenities (banks, accommodation, places of worship, transport etc.)
Pens, paper and other items as required
Notice boards on which information bulletins and other information can be posted: If possible, include details of when information will be updated
Information leaflets including:
- Functions and services provided by the EAC - Stress reactions, signs and symptoms - Help and support available - A range of leaflets are available from the charity organisation - Disaster Action
(www.disasteraction.org.uk )
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TASK SHEET H
HAC Administration Manager
Recommended seniority and organisation:
Team Leader, Local Authority general administration
Role:
Responsible for administrative support to the EAC
Tasks:
Administer and support HAC Management Group Meetings
Arrange meetings
Produce and circulate agendas, minutes, supporting documentation
Carry out other administrative tasks as required to support the Management Team. - Maintain inventory of equipment / facilities acquired for use in operation of the EAC:
e.g. source, cost, method of payment, location, security, responsibility for maintenance, maintenance schedule.
- Develop, document and distribute shift rotas, record time worked, identify and forward time sheets and any overtime claims for processing
- Collate/source physical and virtual information and advice - Collate records: i.e. visitor details - Maintenance of records
Paper information should be maintained in an appropriately secure filing system
Electronic information should be stored on the local authority’s network system. If stored on stand-alone PC’s information must backed-up daily and stored appropriately
TASK SHEET G
HAC Finance Manager
Recommended seniority and organisation:
Local Authority Finance
Role:
Overall financial management of the Centre
Tasks:
Attend Management Team meetings as required
Ensure purchasing and procurement of resources are managed in accordance with existing arrangements e.g. Financial Regulations/Standing Orders
Allocate specific Cost Code/Budget for expenditure relating to the emergency, where these are not already defined
Establish appropriate Petty Cash fund for miscellaneous expenditure
Maintain day-to-day details of financial expenditure and commitment to enable the total cost of the response to be calculated and audited
Ensure costs associated with voluntary agency support are identified as soon as possible
Provide regular budget monitoring reports to HAC Manager
Consider the impact on future budgets should there be a shortfall or delay in reimbursement
Ensure that appropriate arrangements are in place for the management of financial donations
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TASK SHEET I
HAC Communications/Press Manager
Recommended seniority and organisation:
Appointed by the Strategic Co-ordination Group
Role:
Provide co-ordinated media strategy for the Humanitarian Assistance Centre
Tasks:
Develop a co-ordinated media strategy for the Humanitarian Assistance Centre ensuring close liaison with all relevant organisations as required: Refer to existing Media Plan if appropriate
Refer to the LRF Communications Plan
Brief the Centre Management Team regarding media interest and reporting arrangements
Liaise with the Strategic Co-ordinating Group regarding wider news media output
Ensure the continued sustainability of the media response
Consider mutual aid support from other organisations
Consider support from Central Government resources
Liaise with the Information Manager regarding contact numbers, and advise on what information can be released to the public
Keep the news media briefed - Provide information regarding the Centre’s purpose and facilities - Emphasise the need to avoid putting additional stress on bereaved families and
friends
TASK SHEET J
Coroner’s Officer
Recommended seniority and organisation:
Coroner’s Officer
Role:
Liaison with and interface to Coroner function
Tasks:
Provide information on the role of the Coroner and processes involved, particularly if an Inquest or Post Mortem examination is required
Liaise and co-ordinate with the Family Liaison Co-ordinator to ensure consistency of information
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TASK SHEET L
Police Family Liaison Co-ordinator
Recommended seniority and organisation:
Appointed by Police Senior Identification Manager, Senior Investigating Officer, or other
Senior Police Officer
Role:
Provide direction, support and assistance to Family Liaison Officers to deliver the family
liaison strategy
Tasks:
Appoint Family Liaison Officers to appropriate families
Liaise with the Coroner/Coroner’s Officer to ensure consistency of information
Liaise with statutory investigation bodies where appropriate to obtain information regarding the circumstances of the emergency and to provide timely and accurate information about the progress of any enquiry
Liaise with Welfare Support function to ensure Family Liaison Officers receive appropriate information about support available to their families
TASK SHEET K
Police Senior Representative
Recommended seniority and organisation:
Inspector or above
Role:
Liaison with Police
Tasks:
Provide information to the Humanitarian Assistance Centre Management Team relating to the emergency
All identification functions will be conducted in line with the strategy set by the Senior Identification Officer (SIO)
Identification functions will be carried out either by Police Documentation Officers completing missing persons documentation for the Casualty Bureau, or in the case of Level 1 or level 2 involvement categories, a Family Liaison Officer (FLO) may be deployed to a family by a Family Liaison Co-ordinator (FLC)
Investigation functions will be carried out by designated Police Officers under the direction of the Senior Investigating Officer (SIO) depending on the nature of the emergency
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TASK SHEET N
Health Representative(s)
Recommended seniority and organisation:
Public Health Representative – Senior Manager
Role:
Liaison with Health Services, including Acute Hospital Trusts and Mental Health Trusts
Tasks:
Establish communications links with the appropriate Major Incident Control
Provide health service advice to the Humanitarian Assistance Centre Management Group
Assess the requirement for appropriate health service representation according to the scale and nature of the emergency
Locally manage the health service assets deployed to the Humanitarian Assistance Centre in support of the identified requirements
Liaison between the Humanitarian Assistance Centre and the receiving Acute Hospitals through the Major Incident Control
Provide regular updates to the Major Incident Control, to the agreed frequency and content
TASK SHEET M
Police Family Liaison Officer
Recommended seniority and organisation:
Appointed by Family Liaison Coordinator
Role:
Deliver the family liaison strategy as determined by the police Senior Identification
Manager/Senior Investigating Officer
Tasks:
Gather information and evidence from the family as directed
Keep the family informed of any developments in the investigation and recovery operation
Liaise with the Family Liaison Co-ordinator regarding additional support to meet the needs of families
Liaise with social care services in undertaking family liaison role
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TASK SHEET P
Welfare Support
Recommended seniority and organisation:
Social Care Staff
Role:
Provision of appropriate support to those affected by the emergency
Tasks:
Assist with specific information as required
All enquiries or information about relatives or friends must be referred to the Police
Identify information on further sources of support and provide as required
Co-ordinate support to assist with: - Assistance to contact family and friends - Arranging transport: Details of travel companies, taxis, train and bus timetables - Finding temporary accommodation - Liaise with Tourist Information regarding details of accommodation, vacancies, cost. - Enable/assist to make contact with insurance companies - Financial advice and assistance: Liaise with the Benefits Agency regarding - Immediate financial assistance - Further sources of support e.g. with memorial/remembrance services
Assist or enable people to make their own arrangements – Where possible provide access to:
- Telephones - Internet - Telephone directories - Pens and paper - Interpretation Service
Assist with arrangements to view the deceased (arrangements should be co-ordinated by FL)
Assist with arrangements for people to visit the scene of the emergency where appropriate
The Police will co-ordinate arrangements
Logistical support may be required
Implement the Care and Psychological Support Initiative
TASK SHEET O
Voluntary Organisations Representative
Recommended seniority and organisation:
One to represent all agencies
Role:
To represent the voluntary agencies who are likely to provide staff to support the Centre
Tasks:
Managing the contribution of Voluntary Agency staff
Ensuring clarity of role, that staff are suitably trained/qualified for roles allocated
Ensure parent agencies are briefed on a regular basis
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TASK SHEET R
Transport Organisations
Recommended seniority and organisation:
As required
Role:
Liaison between transport operator and Humanitarian Assistance Centre Management Team
Tasks:
Provide customer care trained staff as appropriate to assist those affected by the emergency
Provide information about any action the transport operator is, or will be, taking in response to the emergency
TASK SHEET Q
Child Care Facility
Recommended seniority and organisation:
Manager from Children and Young People’s Services (Local Authority)
Role:
To manage the care of children and young people on behalf of survivors, families and friends
for the duration of their visit to the Humanitarian Assistance Centre
Tasks:
Provide a safe and comfortable area to meet the needs of children and young people, and nursing mothers and their babies/ toddlers
Ensure childcare areas are fit for purpose
Ensure child care area staff and voluntary agency helpers are CRB checked
Provide refreshments for nursing mothers/ toddlers, and any equipment required
Ensure adequate facilities are provided for the disposal of nappies, and the provision of soap, water, and towels, if needed
Ensure plenty of entertainment is available for children, i.e. board games, books, cards, toys, paper and crayons
Ensure appropriate additional security arrangements are in place if children are left in the care of this facility without parents/guardians
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TASK SHEET S
Generic Tasks
Recommended seniority and organisation:
All as appropriate
Role:
Varied duties
Generic Tasks:
Maintain a list of all staff/volunteers working in the functional area and ensure staff sign in and out at the start and end of their shift
Brief staff/volunteers on their duties and functions
Issue tabards/identification
Ensure areas are clearly signed
Maintain a log of significant events
Attend HAC Management Group meetings as required
Refer any enquires from the news media to the Centre Manager
Keep the Centre Manager regularly updated on actions taken
Arrange refreshments and rest periods for staff/volunteers
Inform the Manager of additional staffing and resource requirements
Ensure staff have an opportunity to be debriefed at the end of their shift
Remind staff to be aware that some of those affected by the emergency may not speak English as their first language, and/or may have specific cultural and religious needs. Supervisors should be advised of any requirements to meet these needs, and report these to the Centre Manager
Make staff aware of information sharing protocol to ensure data protection principles and information security are adhered to in relation to personal information
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TASK SHEET T
Department for Culture, Media and Sport
Recommended seniority and organisation:
All as appropriate
Role:
The role of the Minister for Humanitarian Assistance, and DCMS, is to ensure that the needs
of British people affected by emergencies are understood and properly considered within
Government in building preparedness for and responding to emergencies, and to represent
the Government and explain its policies when dealing with victims and their families
Tasks:
Provide a co-ordinated approach to aftercare for the survivors and bereaved relatives to the highest possible standard
Co-ordinate a cross-government approach to financial support for survivors and bereaved relatives of disasters
Arrange a suitable and fitting memorial service for victims of major disasters, of all faiths and communities
Co-ordinate a longer-term strategy to help individuals and communities respond to disaster and the threat of disaster, ensuring there are strong links with other work being taken forward across Government