MAJOR

STRUCTURE COLLAPSE SUB PLAN

A SUB PLAN OF THE NSW STATE DISASTER PLAN

June 2011

Major Structure Collapse Sub Plan June2011

AUTHORISATION

The Major Structure Collapse Sub Plan has been prepared as a sub plan to the New South Wales State Disaster Plan ( Displan ) to detail the control and co-ordination arrangements for the preparation for, response to, and immediate recovery from a major structure collapse. It encompasses Urban Search and Rescue ( USAR ). This plan has been prepared by the State Emergency Operations Controller in consultation with the State Emergency Management Committee and State Rescue Board, taking into account the provisions of the State Rescue Policy. The Sub Plan is authorised in accordance with the provisions of the State Emergency & Rescue Management Act 1989 ( as amended ). Chair State Emergency Management Committee Date : 2 June 2011

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AMENDMENT LIST

Proposals for amendment or addition to the contents of the NSW Major Structure Collapse Sub Plan are to be forwarded to : The Executive Officer State Emergency Management Committee

PO Box 6976 Silverwater, NSW 2128

Amendments promulgated are to be certified in the undermentioned sheet when entered.

Amendment Entered Number Date Signature Date

Original Document December 2001 Complete Review June 2011

DISTRIBUTION

This Sub Plan is to be distributed in electronic format and is maintained on the State Emergency Management Committee website at www.emergency.nsw.gov.au.

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CONTENTS

AUTHORISATION ............................................................................................................ 3

AMENDMENT LIST .......................................................................................................... 4

DISTRIBUTION ................................................................................................................ 4

DEFINITIONS ................................................................................................................... 6

ABBREVIATIONS ........................................................................................................... 10

1. INTRODUCTION ................................................................................................ 11

2. AIM ................................................................................................................... 11

3. SCOPE ............................................................................................................... 11

4. CONCEPT OF OPERATIONS ............................................................................... 12

5. PREPARATION .................................................................................................. 13

6. ROLES AND RESPONSIBILITIES ......................................................................... 13

7. RESPONSE ........................................................................................................ 16

8. ADMINISTRATION AND LOGISTICS................................................................... 17

9. RECOVERY ........................................................................................................ 18

10. APPENDICES ..................................................................................................... 19

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DEFINITIONS

Building Permanent or temporary structure enclosed within exterior walls, floor and a roof, and including all attached apparatus, equipment, and fixtures that cannot be removed without cutting into the floor, roof or walls. Casualty A person injured as the result of an incident or emergency. Command in this plan means the direction of members and resources of an agency /organisation in the performance of the agency/organisation's roles and tasks (Source: SERM Act). Authority to command is established by legislation or by agreement with the agency/organisation. Command relates to agencies/organisations only, and operates vertically within the agency/organisation. Combat Agency means the agency identified in the State Disaster Plan (Displan) as the agency primarily responsible for responding to a particular emergency. (Source: SERM Act). Control means the overall direction of the activities, agencies or individuals concerned. (Source: SERM Act). Control operates horizontally across all agencies/organisations, functions and individuals. Situations are controlled. Coordination means the bringing together of agencies and individuals to ensure effective emergency or rescue management, but does not include the control of agencies and individuals by direction. (Source: SERM Act) Danger Area means the area specified by a senior police as the area in which an emergency is causing or threatening to cause injury or death. (Source: SERM Act). The identification of such areas for the purpose of this plan will include consultation with the FRNSW Commander and USAR Task Force Leader. Disaster Victim Identification (DVI) The process used to establish the identity of deceased persons. It is a function of the NSW Police Force Forensic Services Group (as agents of the State Coroner). Disaster Victim Registration (DVR) The process used to record the movements or intended movements of displaced persons, whether injured or not, and other relevant details necessary for Police operations, as well as ensuring that inquiries from concerned friends and relatives can be dealt with expediently. Police are responsible for initiating and controlling the registration system. Displan The New South Wales State Disaster Plan. (Source: SERM Act) District Emergency Operations Controller (DEOCON) means the Region Commander of Police appointed by the Commissioner of Police, as the District Emergency Operations Controller for the Emergency Management District. (Source: SERM Act) Emergency means an emergency due to the actual or imminent occurrence (such as fire, flood, storm, earthquake, explosion, accident, epidemic or warlike action) which:

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(a) endangers, or threatens to endanger, the safety or health of persons or animals in the State; or (b) destroys or damages, or threatens to destroy or damage, any property in the State,

being an emergency which requires a significant and co-ordinated response.

For the purposes of the definition of emergency, property in the State includes any part of the environment of the State. Accordingly, a reference in the Act to:

(a) threats or danger to property includes a reference to threats or danger to the environment, and (b) the protection of property includes a reference to the protection of the environment. (Source: SERM Act)

Emergency Operations Centre (EOC) means a centre established at State, District or Local level as a centre of communication and as a centre for the coordination of operations and support during an emergency. (Source: SERM Act) Emergency Operations Controller (EOCON) The member of the NSW Police Force who has been appointed as Local, District or State Emergency Operations Controller. (Source: SERM Act) Functional Area A category of services involved in preparations for an emergency, including the following:

• Agriculture and Animal Services • Communication Services • Energy & Utilities Services • Engineering Services • Environmental Services • Health Services • Public Information Services • Transport Services • Welfare Services

Fire & Rescue NSW Commander means the senior FRNSW officer present on scene assuming command of FRNSW personnel and may assume authority for the USAR operation in the absence of the USAR Task Force Leader. Functional Area Co-ordinator (FAC) The appointed head of a functional area, who, by agreement of participating organisations within the functional area, has the authority to commit the resources of those participating agencies. (Source: Displan) Incident A localised event, either accidental or deliberate, which may result in death, injury or damage to persons or property, and requires a normal response by a combat agency. Liaison Officer (LO) In this plan means a person, nominated or appointed by an organisation or functional area, to represent that organisation or functional area at a control centre, emergency operations centre or coordination centre, a liaison officer maintains communications with and conveys directions/requests to their organisation or functional

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area, and provides advice on the status, capabilities, actions and requirements of their organisation or functional area. Major Structure Collapse Is the collapse of a building(s) or structure(s) which requires a coordinated multi-agency response for search & rescue purposes or to control further collapse / damage beyond the capability of the local resources. Recovery In relation to an emergency includes the process of returning an affected community to its proper level of functioning after an emergency. (Source: SERM Act) Rescue Unit A unit (comprising a group of persons) which carries out rescue operations for the protection of the public or a section of the public. (Source: SERM Act) Response In relation to an emergency includes the process of combating an emergency and of providing immediate relief for persons affected by an emergency. (Source: SERM Act) Site Controller Is the person, usually the senior police officer present, who is responsible for the overall control of the situation, including coordinating rescue tasking others, co-ordinating resources, and determining the priority actions of all agencies involved at the site. The Site Controller manages the overall site and is appointed by the Emergency Operations Controller. (Source: Displan) State Emergency Operations Controller (SEOCON) means the person appointed by the Governor, on the recommendation of the Minister, responsible, in the event of an emergency which affects more than one District, for controlling the allocation of resources in response to the emergency. The State Emergency Operations Controller is to establish and control a State Emergency Operations Centre. (Source: SERM Act) State Emergency Recovery Controller (SERCON) means the person appointed by the Minister for Emergency Services and responsible for controlling the recovery from the emergency. (Source: SERM Act) Structure Construction or framework of identifiable elements (components, entities, factors, members, parts, steps, etc.) which gives form and stability, and resists stresses and strains. Structures have defined boundaries within which each element is physically or functionally connected to the other elements, and the elements themselves and their interrelationships are taken to be either fixed (permanent) or changing only occasionally or slowly. Support Base means an area established by the Site Controller for logistical support. Task Force Leader The Fire & Rescue NSW Officer responsible for the overall management and control of USAR operations including the USAR Task Force and other assigned resources. Urban Search and Rescue (USAR) An integrated multi-agency response which is beyond the capability of normal rescue arrangements to locate, provide initial medical care and remove entrapped persons from damaged structures and other environments in a safe and expeditious manner. (Source: National USAR Workshop)

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USAR Operators Personnel competent in USAR procedures to the following levels:

• Category 1: trained to a level as a first responder and are able to apply initial surface rescue techniques at a collapse emergency.

• Category 2: trained in highly specialist rescue techniques associated with structural

collapse. Trained to operate within a USAR Task force for a long duration emergency.

• Category 3: trained to command, and manage a USAR Task Force. USAR Reconnaissance Team An assembly of appropriate USAR team personnel assigned to assess an impacted area or building to determine the need for Urban Search and Rescue operations. USAR Task Force. A USAR Task Force is a multi-agency team trained and equipped to conduct rescue operations at major structure collapses over an extended period.

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ABBREVIATIONS

BoO Base of Operations DEOCON District Emergency Operations Controller Deputy SEOCON Deputy State Emergency Operations Controller Displan NSW State Disaster Plan DOI Duty Operations Inspector, VKG Sydney DVI Disaster Victim Identification DVR Disaster Victim Registration EOC Emergency Operations Centre EOCON Emergency Operations Controller FAC Functional Area Co-ordinator FRNSW Fire & Rescue NSW LO Liaison Officer SEMC State Emergency Management Committee SEOC State Emergency Operations Centre SEOCON State Emergency Operations Controller SERCON State Emergency Recovery Controller SERM Act State Emergency & Rescue Management Act 1989 SRB State Rescue Board USAR Urban Search and Rescue VKG 1 Police Communications, Sydney

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1. INTRODUCTION 1.1 This sub plan has been prepared at the direction of the State Emergency

Management Committee (SEMC) as a State level Sub-Plan of the State Disaster Plan. This plan details Urban Search and Rescue (USAR) for a major structure collapse(s) or similar emergency in New South Wales.

1.2 Fire and Rescue NSW (FRNSW) is the designated combat agency for major structure

collapse or similar emergencies where a USAR response is required ( in accordance with the State Disaster Plan (Displan).

1.3 A major structure collapse will generally require a multi-agency co-ordinated

response utilising specialised resources from outside of the local area, including emergency services and functional areas.

1.4 Minor structure collapse(s) can normally be dealt with using normal rescue and

emergency management arrangements at local level, albeit sometimes requiring limited specialised USAR support eg. equipment, personnel.

1.5 District and local plans for major structure collapse are not required as the principles

contained herein and the roles and responsibilities do not change. 1.6 This sub plan should be read in conjunction with Urban Search & Rescue :

Capabaility Guidelines for Structural Collapse Response (Emergency Management Australia, 2004).

2. AIM 2.1 The aim of this sub plan is to detail the arrangements for the control and co-

ordination of, the preparation for, response to and immediate recovery from a major structure collapse or similar events where a USAR deployment is required.

3. SCOPE 3.1 This sub plan details the special arrangements for major structure collapse

emergencies that may occur in NSW. Major structure collapse emergencies are likely to require a multi-agency response that may incorporate USAR.

3.2 Structure collapses that do not require a significant and coordinated response are to

be dealt with in accordance with local rescue arrangements and Disaster Plans. 3.3 This sub plan operates within the context of the following plans and arrangements:

• NSW State Disaster Plan (Displan) • NSW Functional Area Supporting Plans to Displan:

- Agriculture & Animal Services - Energy & Utilities Services - Engineering Services

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- Environmental Services (ENVIROPLAN) - Health Services (HEALTHPLAN) - Transport Services - State Disaster Welfare Services

• NSW Hazardous Material Emergency Sub Plan (HAZMATPLAN) • NSW Ambulance Plan (AMPLAN) • NSW State Rescue Policy (issued by the State Rescue Board) • District Disaster Plans • Local Disaster Plans

4. CONCEPT OF OPERATIONS 4.1 A major structure collapse could occur anywhere in New South Wales. The initial

response will come from local emergency services organisations, utilising their normal skills and equipment. In the event that specialist advice, skills and/or equipment are required, the normal rescue and emergency management arrangements will apply for the provision of that support.

4.2 The first arriving rescue unit will assess the scene, undertake immediate actions and

provide advice on rescue requirements to the senior Police officer at the scene. 4.3 Initially, Police will, in consultation with the responding rescue unit(s) be responsible

for determining whether the structure collapse is an incident which can be handled using normal resources, or an emergency which requires a higher level of management or resourcing. The Duty Operations Inspector (DOI) at Police Communications, Sydney (VKG1) is to be informed of the decision and advise the SEOC accordingly.

4.4 In the event that the structure collapse constitutes a major emergency, this plan is

to be activated by the SEOCON, and a USAR Reconnaissance team deployed. The SEOC will be opened to co-ordinate support as appropriate and to advise the SEOCON.

4.5 The lowest level of operation for a major structural collapse is District level. An EOC

will be opened to control operations and/or co-ordinate support if determined that the emergency can be controlled at District level. When control is vested in the SEOCON, the District level will co-ordinate support as directed.

4.6 A Site Control will be established and controlled by the Site Controller in

consultation with the FRNSW Commander and USAR Task Force Leader. 4.7 Pending the arrival of the USAR Task Force Leader, the FRNSW Commander will

assume responsibility for the danger area (including Category 1 USAR operations), in consultation with the Site Controller and accredited rescue unit.

4.8 FRNSW will facilitate a USAR Task Force deployment when requested by the

SEOCON. 4.9 Other emergency services organisations and functional areas will deploy resources

in accordance with this plan and directions from the SEOCON.

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5. PREPARATION 5.1 Training

a. The SRB is responsible for endorsing policy and training material for the rescue elements of major structure collapse operations. b. FRNSW is responsible for developing, and as appropriate, delivering training material for USAR operations.

5.2 Equipment

FRNSW is responsible for establishing and maintaining equipment and resources for USAR Task Force(s).

5.3 Exercises

FRNSW is responsible for conducting mulit agency structure collapse exercises which are to be conducted on a bi-annual basis.

6. ROLES AND RESPONSIBILITIES 6.1 SEOCON:

a. Activate this sub plan in consultation with Commissioner, FRNSW b. Activate SEOC. c. Control elements of the response operation not directly under the control of the combat agency d. Authorise the deployment of a USAR Task Force. e. Brief Premier and Minister for Police & Emergency Services.

6.2 SEOC: a. Inform FRNSW of activation of this plan. b. Liaise with FRNSW and DEOCON to ensure that deployment of USAR Task Force is coordinated. c. Advise Emergency Service Organisations and Functional Areas at State level. d. Monitor the situation. e. Ensure SEOCON is updated regularly.

6.3 DEOCON:

a. Activate the EOC. b. Control elements of the response operation not directly under the control of the combat agency or SEOCON. c. Co-ordinate Initial Impact Assessment process.

6.4 EOC:

a. Inform District and/or local emergency services organisations and functional areas of activation of this plan. b. Support the DEOCON as required.

6.5 Site Controller:

a. Establish Site Control. b. Co-ordinate site operations, including initial rescue operation in co-operation with FRNSW Commander and accredited rescue unit(s).

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c. Define the danger area in consultation with the FRNSW Commander and USAR Task Force Leader. d. Establish Support Base. e. Report to DEOCON.

6.6 Fire and Rescue NSW:

a. Perform role of combat agency for Urban Search & Rescue operations, including Category 1, 2 and 3. b. Provide specialist advice regarding USAR operations. c. Provide a FRNSW Commander to assist in initial rescue co-ordination. d. Provide and control USAR Task Force(s) including Reconnaissance Team(s). e. Deploy the USAR Task Force as directed by the SEOCON. f. Provide follow up resources for Task Force(s) as required. g. Deal with fires or hazardous materials emergencies in and near the major structure collapse. h. Provide appropriately trained personnel as required.

6.7 NSW Police Force:

a. Provide a Site Controller. b. Staff EOC and a Site Control. c. Provide appropriately trained personnel to support USAR operations. d. Ensure that appropriate area and route security are provided. e. Operate DVR and DVI systems as required. f. Operate a temporary morgue if required. g. Activate a public inquiry system as appropriate. h. Conduct normal investigations.

6.8 Rural Fire Service:

a. Provide fire protection and incident ground support when in Rural Fire District. b. Assist with fire protection and hazardous materials incidents as required when in Fire District. b. Assist Police with area and route security as required.

6.9 Ambulance Service of NSW:

a. Provide appropriately trained Paramedic members of the USAR Task Force(s). b. Assume role of Health Commander as detailed in HEALTHPLAN and AMPLAN in regard to the management of casualties c. Provide pre hospital care and support to the USAR task force and operational area. d. Provide appropriately trained personnel as required.

6.10 State Emergency Service:

a. Provide appropriately trained Category 1 personnel to support USAR operations as required. b. Provide canine support to USAR operations. c. Assist Police with area and route control, as required.

6.11 Volunteer Rescue Association:

a. Provide appropriately trained Category 1 personnel to support USAR operations, as required. b. Assist Police with area and route control, as required.

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6.12 Agriculture and Animal Services: Provide for the welfare of any animals which may be involved in the major structure collapse.

6.13 Energy & Utilities Services: a. Co-ordinate energy and utility services in accordance with the Energy & Utilities Functional Area Supporting Plan.

6.14 Engineering Services:

a. Provide appropriately trained Structural Engineers as members of the USAR Task Force(s) b. Provide engineering support to the USAR Task Force(s) c. Provide engineering support and technical advice to the operations

6.15 Environmental Services:

a. Protect the environment during emergency response and recovery operations. b. Advise and coordinate scientific support to the combat agency during hazardous materials emergency operations. c. Advise combat agencies and other Functional Areas involved in an emergency, on environmentally sound and legal practices for the disposal of wastes or contaminated materials resulting from an emergency.

6.16 Health Services:

a. Control the medical response in accordance with HEALTHPLAN. b. Provide public health and mental health support for responding agencies and affected community. c. Provide appropriately trained medical officers to support USAR Task Force(s). d. Provide specific health advice to responding agencies.

6.17 Public Information Services:

Co-ordinate media for the operation in accordance with the Public Information Services Functional Area Supporting Plan.

6.18 Transport Services:

Provide transport for personnel and equipment as required in accordance with the Transport Services Functional Area Supporting Plan.

6.19 Welfare Services:

Provide the full range of welfare services to victims and their families, as required, in accordance with the Welfare Services Functional Area Supporting Plan.

6.20 Local Government:

a. Provide resources for initial securing and rendering the area safe from general public access. b. Provide technical advice to the operation.

6.21 Mines Rescue Organisation:

a. Provide technical advice to the USAR Task Force Leader. b. Provide technical advice to the operation.

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7. RESPONSE 7.1 Activation

a. SEOCON will activate this plan in consultation with Commissioner, FRNSW. b. The SEOCON will activate the SEOC to the appropriate level and advise the Premier and Minister for Police & Emergency Services of the situation. c. The DEOCON of the emergency management district in which the structure collapse has occurred is responsible for activating the District Disaster Plan and deploying district resources as required. d. DEOCON will appoint a Site Controller. e. FRNSW will appoint the USAR Task Force Leader and FRNSW Commander who will liaise with the Site Controller. f. USAR Task Force Reconnaissance Team will be deployed and Task Force assembled. g. SEOC disseminates operational information to all emergency services and functional areas as directed by the SEOCON. h. Arrange for media and community information to be disseminated at the commencement of operations.

7.2 Deployment a. Establish Site Control by Site Controller. b. USAR Task Force is to deploy and establish communications with Site Control. c. Support Base to be established (refer to section 8.2). d. USAR Task Force to evaluate building safety and integrity prior to commencing rescue operations.

7.3 Stand Down

The SEOC / EOC will: a. advise stand-down. b. SEOCON will hand over recovery operation to the State Emergency Recovery Controller (SERCON) as appropriate. c. Arrange for the media and the community to be advised of the cessation of operations. d. Arrange for multi agency debrief(s) to review response.

7.4 Control

a. The DEOCON is in control of operations unless control is exercised by the SEOCON. b. The senior Police Officer at the scene is to perform the functions of Site Controller until such time a formal appointment is made by the EOCON. c. The USAR Task Force Leader is to control USAR operations and co-ordinate all resources allocated to the USAR Task Force. d. The FRNSW Commander is to control all FRNSW resources outside of the danger areas. e. Whilst maintaining internal command structures, Emergency Services Organisations and Functional Areas are under operational control of the Site Controller whilst on site, but retain command of their own resources.

7.5 Liaison

Emergency Services Organisations and Functional Areas are to provide liaison as required to: a. SEOC.

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b. EOC. c. Site Control.

7.6 Communications

a. Emergency services organisations and functional areas are responsible for providing their own internal communications. b. Police are responsible for providing communications for the Site Control. c. Site Controller is responsible for establishing communications between agencies on site. d. EOCON is responsible for ensuring communications is established between Site Control and EOC.

7.7 Interstate and Overseas Deployment a. The Commissioner, FRNSW, in consultation with the SEOCON and other participating agencies, may initiate preparations for deployment of USAR resources interstate or overseas in response to a request. b. The SEOCON and Minister for Police & Emergency Services will make a recommendation to the Premier when a request is received for interstate or overseas deployment. c. Interstate and Overseas deployments will be subject to conditions agreed between the requesting State or territory and/or the Australian Government. .

8. ADMINISTRATION AND LOGISTICS 8.1 Logistic Support

a. Emergency services organisations and functional areas are responsible for their own logistic support in the first instance. Additional support may be co-ordinated by the SEOC / EOC. b. Movement of equipment and personnel into the operational area must be approved by the EOCON in consultation with the Site Controller.

8.2 Support Base

Major structure collapse operations generally require large numbers of personnel and considerable equipment. When establishing the Support Base, the Site Controller should take into consideration the following requirements: a. accommodation and welfare facilities for personnel. b. ablution facilities. c. areas for vehicles and equipment, preferably by service. d. transport/transhipment facilities. e. helicopter landing zone. f. first aid station. g. fuel. h. security. i. proximity to danger area. It should be noted that USAR Task Forces are self sufficient for a minimum period of ten (10) days. The USAR Task Force Leader may establish a Base of Operations

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remote from the Support Base to facilitate direct operational requirements of the Task Force.

8.3 Financial Responsibilities

Agencies contributing personnel and resources to any structure collapse operation are responsible for meeting their own costs for both training and operation, Expenditure of funds by Emergency Service Organisations or Functional Areas during emergency response and/or recovery operations is to be met in the first instance by the providers of resources from within their normal operating budgets. Should expenditure be of such a magnitude as to prevent the providing agencies/functional areas from continuing their normal operations for the remainder of the financial year, NSW Treasury may provide supplementation, however Departments cannot be guaranteed that funding will be provided.

9. RECOVERY 9.1 The arrangements for recovery operations in New South Wales are outlined in the

NSW State Displan (Part 6) and further described in the State Recovery Plan. 9.2 The New South Wales Recovery Plan outlines the strategic intent, responsibilities,

authorities and the mechanisms for disaster recovery in New South Wales. The Recovery Plan, together with the guidelines, allow for the development and implementation of a planned recovery following a natural disaster or other emergency.

9.3 This process is overseen by the State Emergency Recovery Controller (SERCON)

which is a statutory position appointed by the Minister for Police & Emergency Services and responsible for controlling the recovery from the emergency. (Source: SERM Act)

9.4 Following a major structure collapse, the SEOCON will liaise with the SERCON to

discuss recovery arrangements as detailed in the State Recovery Plan.

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10. APPENDICES 10.1 APPENDIX 1 - NOTIFICATION & ACTION SEQUENCE

10.2 APPENDIX 2 - ORGANISATION CHART

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10.3 APPENDIX 3 - USAR ORGANISATION CHART