COMHAIRLE CONTAE ÁTHA CLIATH THEAS
SOUTH DUBLIN COUNTY COUNCIL

south dublin county council crest

MEETING OF RATHFARNHAM AREA COMMITTEE

Tuesday, December 13, 2011

HEADED ITEM NO. 5

COUNCIL'S MEASURES/PLAN TO ADDRESS HEAVY SNOW & RAINFALL IN THE RATHFARNHAM AREA

Update on the preparation of Flood Emergency and Severe Weather Plans

 

A Framework for Major Emergency Management – Background.

 The Framework for Major Emergency Management has been in place since 2006, following a review of the previous Framework for Co-ordinated Response to Major Emergency which had been in existence since 1984.

The new Framework was prepared under the aegis of the Inter-Departmental Committee on Major Emergencies, and has been approved by Government decision. The Framework was drafted by an inter-agency Review Working Group made up of representatives of An Garda Síochána, the Health Service Executive and the Local Authorities. The Review Working Group was chaired and supported by the DoEHLG.  An Garda Síochána, the Health Service Executive and the Local Authorities are the agencies charged with managing the response to emergency situations which arise either locally or regionally. They provide and operate Ireland’s principal emergency services, which respond to emergencies on a daily basis.

 In general, the response will be initiated by the three principal emergency services, which deal with “normal” emergencies as part of their every-day work. The principal emergency services have protocols and procedures in place to support their work at a range of events, from small, routine occurrences to large-scale incidents.  The Framework sets out arrangements which will facilitate the principal emergency services in scaling-up the response required, so as to utilise the full resources of the principal response agencies, and to work together in the management of large-scale incidents. The Framework also provides mechanisms for linking the work of the principal response agencies with those at other levels of Government.

 The Framework sets out arrangements by which other services, such as the Defence Forces, voluntary emergency services, utilities, transport companies, industrial and  other participants, and not least the communities affected, can support and work with the principal response agencies in reacting to and managing major emergencies. The Framework provides guidance for bodies/agencies, which are involved in different aspects of emergency management on how they should interact with the principal response agencies. This is especially important to those who are required to prepare emergency plans (such as site or event specific plans for SEVESO sites, airports,  ports, major sports events, etc.). Where such plans involve the principal response agencies, the Framework defines how they will respond and operate at such sites or events.

 Scope of the Framework

 The Framework is designed primarily to provide for the protection, support and welfare of the public in times of emergency. Effective arrangements to ensure public safety in times of emergency also have the benefit of helping to safeguard the environment, the  economy, infrastructure and property. The Framework sets out to achieve this by –

 While the Framework sets out common arrangements, it also recognises the need for a flexible approach and that the response of the agencies will need to take account of the unique factors involved in each emergency situation.

The Framework provides for an overall, combined response as soon as a major emergency is declared. Any one of the principal response agencies may declare a major emergency and the mobilisation procedures of the Major Emergency Plans of the three relevant agencies will be activated immediately they are notified of the declaration. The Major Emergency Plan of each agency sets out that agency’s response, as well as its contribution to the combined response of all agencies. The functions and responsibilities of each agency are set out in the Framework so as to ensure that the response to a major emergency is both comprehensive and co-ordinated.

The Framework does not and is not intended to address the detailed response procedures of the relevant agencies in relation to specific incidents or hazards. However, it identifies where such procedures are required and it is expected that each of the agencies will review or develop its own procedures and arrangements on which the response of that agency will be built. Such procedures should be consistent with the provisions of the Framework. The Framework deals with major emergencies which may occur in Ireland. However, an emergency occurring near the border with Northern Ireland could impact across the border and vice versa. In such a situation, effective information sharing and co-ordination with corresponding response services in Northern Ireland are required. The Framework is intended to support and enhance the existing liaison and co-operation between the principal response agencies in border areas.

 There are a number of potential emergencies which if they occur are most likely to be on a national scale – including nuclear accidents, infectious disease outbreaks (e.g. smallpox, influenza pandemic) or outbreaks of animal disease (e.g. foot and mouth, avian flu). In contrast with major emergencies, the characteristics of these emergencies may include being non-site specific and occurring over an extended time period. In these situations the relevant national emergency plan will be activated by the Lead Government Department or the appropriate national body. The co-ordination arrangements of local Major Emergency Plans may be activated in support of these National Emergency Plans.

 Major Emergency Plans

Since the mid-1980s the principal response agencies have prepared Major Emergency Plans in accordance with a standard framework11, which enables them to respond to incidents that fall within the definition of a major emergency. There is a need to develop this process to meet the requirements of major emergency management set out in the Framework.  The current Framework requires that -

 Each principal response agency should prepare an individual Major Emergency Plan which sets out its arrangements to respond to events occurring in, or impacting on, its functional area which require the declaration of a major emergency. The updated Major Emergency Plan should be reviewed annually.

 The Framework requires that each principal response agency should prepare its own individual Major Emergency Plan. South Dublin County Council has had an Emergency Plan in place since 2008 which complies with the requirements of the current Framework, and that Plan has been updated most recently in May 2011.  The co-ordination arrangements of the Framework will be common to all agencies and mechanisms for ensuring that common arrangements are included in each Major Emergency Plan are set out in the Framework.  The Framework requires that -

 The Major Emergency Plan of each individual agency should be consistent with the arrangements set out in the Framework, should contain the section headings set out below and should conform with the further guidance in A Guide to Preparing a Major Emergency Plan.

This is to facilitate checking for inter-agency operability, as well as ensuring that the common arrangements to facilitate co-operation and co-ordination are included in all Major Emergency Plans. While elements will be common to all Major Emergency Plans, each plan should be developed/written from the individual principal response agency’s perspective, setting out how it should perform its functions and how it should work with its partner principal response agencies and others in the response.  The Framework sets out the section headings that should be included in all Major Emergency Plans.  The Framework requires that -

 Each principal response agency’s individual Major Emergency Plan should be reviewed for inter-operability with the plans of its partner principal response agencies and for consistency with the Framework by the relevant Regional Steering Group on Major Emergency Management. Any issues arising from this review should be referred back to the principal response agency for appropriate action. In case of disagreement, which is not resolved by local discussion, the National Steering Group should be consulted and should decide the issue.

 Sub Plans to the Major Emergency Plan

Each principal response agency needs to consider how it will perform the functions assigned to it by the Framework. As functions assigned reflect the normal competencies of the principal response agencies, the working arrangements may already be developed at local, regional or national level and the appropriate resources may already be in place. To ensure that all aspects are covered the Framework recommends that –

 Each principal response agency should revise/update and develop as necessary its Sub-Plans to enable its different sections and services to perform the functions assigned to the agency by the Framework. The full list of Sub-Plans should be listed in an Appendix to the Major Emergency Plan.

 Severe Weather Plans

Severe weather emergencies may involve significant threats to infrastructure and support may be required for vulnerable sections of the community. Section 5.4.2 and Appendix F7 of the Framework provide that Local Authorities are the lead agency for co-ordinating the response to severe weather events. Arrangements put in place by Met Éireann to issue public service severe weather warnings to the Local Authorities are set out in Appendix F6 of the Framework. Not all severe weather events will be major emergencies, but the principles and arrangements for co-ordinated response to major emergencies should inform all response to severe weather events. Local Authorities should ensure that effective arrangements are in place to receive and respond promptly to public service severe weather warnings issued by Met Éireann.  It is worth noting that the severe winter weather experienced over a 4 to 5 week period at the end of 2010 did not give rise to the declaration of a major or national emergency, the national coordination arrangements however were activated to coordinate the response to the situation nationally.

 The Road Maintenance Dept of South Dublin County Council has in place at present a Winter Maintenance Plan for the treatment of roads in the event of severe weather.  Work is underway at present to review that plan and expand it to address other relevant issues that arise during such an event.   It is proposed that the Winter Maintenance Plan will form the basis of the Severe Weather Plan once a review of that plan has been completed.  The Severe Weather Plan when completed will deal with a wide range of topics such as the maintenance of the public water supply including water conservation issues, actions necessary to ensure the maintenance of services in the County, details of the on the ground response of the Council’s staff and the likely interaction with the other principal response agencies and voluntary services during such an event.  At present there is no guidance available which can be used in the preparation of this type of sub plan, however guidance on the matter is expected to be issued by the national working group on emergency management in the near future.  It is proposed that the Council’s plan will be reviewed and amended now in the absence of that guidance, the plan can be subsequently amended to conform with the guidance if this is necessary.

 Flood Emergency Plans

A Flood Emergency Plan (FEP) outlines the roles and responsibilities of all parties to be involved, actions to be taken, coordination arrangements and communication channels to be used prior to, during and after a flood event. The principal parties involved are the PRA’s as designated in the Framework for Major Emergency Management (An Garda Siochana, the Health Service Executive and the Local Authority), support agencies/organisations and local communities. The purpose of planning for flood emergencies is to reduce the risk to health and life and the damage caused by flooding.

 A Flood Emergency Plan is a sub-plan of the Local Authority Major Emergency Plan. Each responding organisation in turn prepares its own Agency Specific Standard Operating Procedure / Standing Operating Guideline (SOP/SOG) or Sub Plan.

 Formalising of the flood response in the form of a Flood Emergency Plan will help to inform all who need to be involved as to the overall response effort, and illustrate what tasks are being carried out by other parties. This has the advantage of ensuring that duplication of tasks will not occur resulting in the uneconomic deployment of resources and avoids gaps in response, i.e. nobody takes responsibility for a necessary action.

The knowledge and experience of flood response procedures gained by local authority and emergency services staff can be lost when they are absent, move to other posts or retire. Having a flood emergency plan ensures that the experience and lessons learned by current staff can be preserved and drawn upon by being incorporated and recorded in a written format for use by all staff in the future.  The Framework document A Guide to Flood Emergencies recommends that a Flood Emergency Plan should contain the information as listed below.  Much of this is in place at present in different forms, for example some of the information is already contained in the Major Emergency Plan itself.  The flood history and flood mapping records are available in the drainage maintenance section and with the OPW, these are being updated at present following the recent flooding emergency on October 24th.  Safety, Health and Welfare considerations are dealt with in the Council’s safety statement.  All of the relevant information is being reviewed at present and will be updated in the form of a Flood Emergency Plan early in 2012.

 INTRODUCTION

AREA OF OPERATION AND FLOOD HISTORY – RISK ASSESSMENT

Area of Operation

Flood History – Risk assessment

ROLES AND RESPONSIBILITIES

FLOOD WARNING STAGES AND ACTION-PLAN

Flood Warning System

Action Plan

INFORMATION MANAGEMENT AND THE MEDIA

APPENDICES

Appendix A: List of contacts

Appendix B: Maps

Appendix C: Field Equipment, Facility Resource List, and Main Buildings

Appendix D: Sandbag/Flood-proofing Policy and Procedures

Appendix E: Evacuation & Vulnerability Registers

Appendix F: Incident Report Form & Flood Records

Appendix G: Traffic Management

Appendix H: Recovery& Clean-up Operations

Appendix I: Flood Forecasting & Warning - System Details

Appendix J: Safety, Health and Welfare considerations

Appendix K: Training and Testing of the Flood Plan

Appendix L: Flood Emergency Plan Distribution List

Appendix M: List of Definitions

Appendix N: Public Information

Appendix O: Mutual Aid Agreements with other Agencies

Appendix P: Details of Instructions for Temporary Flood Defences

AGENCY SPECIFIC PROCEDURES

Agency Specific Procedures