nz usar strategic plan 2005 – 2009
DESCRIPTION
The Steering Committee was reconstituted in late 2004 to reflect the change in emphasis from capability development to embedding USAR more effectively within business as usual arrangements. One of the first activities of the new Steering Committee was to prepare this new Strategic Plan to provide the direction for the USAR capability via a series of priorities for the five year period from 2005/06 to 2009/10.TRANSCRIPT
NZ Urban Search and Rescue
Strategic Plan 2005 – 2009
Prepared by the USAR Steering Committee
December 2005
Working Version Post-Steering Committee 16 February
NZ Urban Search and RescueStrategic Plan 2005-2009
Contents
Page No.
1. Introduction 3
1.1 Background
1.2 Current Organisational Structures
1.3 Current Capability
2. Strategic Direction 6
3. Key Organisational Roles and Responsibilities 7
4. Strategic Priority Activities 2005 - 2009 10
5. Strategic Risks 13
Appendix A – Responsibilities of the USAR Steering Committee 14
Appendix B – Annual Calendar of Planning & Reporting Processes 15
Appendix C – USAR Marketing and Communications Framework 16
USAR SC Strategic Plan Post-Feb SC Mtg 20060216
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1. Introduction
1.1 Background
During the three years up until mid-2004, the development of USAR in NZ and the role of the Steering Committee has been guided by the August 2001 Strategic Plan entitled Urban Search and Rescue in New Zealand: Establishing an Integrated Capability.
The 2001 report outlined the principal NZ USAR needs to be as follows:
Specialist USAR units capable of undertaking heavy structural rescue operations over extended period of time
General Rescue (Registered Response – RRT) teams associated with each Civil Defence Emergency Management Group that are specifically trained as first responders in a structural collapse situation
Access to international USAR teams, and mechanisms in place for their deployment
Inter-agency training and standards consistent with international standards
Response mechanisms for USAR that will enable the local teams and national units to be integrated with local emergency services
Appropriate co-ordinating structures at national and local levels
The recommended minimum USAR capability elements and arrangements outlined in the 2001 document were essentially all in place by mid-2004. While there is further work to be done with respect to equipping, systems and procedures, it is desirable to consider this now as a “business as usual” activity for the joint delivery agencies of the NZ Fire Service and the Ministry of Civil Defence & Emergency Management, along with the maintenance of the capability. The remaining capability development elements will be incorporated in the business plans of these agencies.
The Steering Committee was reconstituted in late 2004 to reflect the change in emphasis from capability development to embedding USAR more effectively within business as usual arrangements. One of the first activities of the new Steering Committee was to prepare this new Strategic Plan to provide the direction for the USAR capability via a series of priorities for the five year period from 2005/06 to 2009/10.
1.2 Current Organisational Structures
The current organisational structure of the Steering Committee and Working Groups is depicted in Figure 1 on the following page.
The Steering Committee is chaired by MCDEM, with representation from the NZ Fire Service, NZ Police, Ambulance NZ and Local Government New Zealand. The agreed responsibilities of the Steering Committee, extracted from the Charter, are included in Appendix A.
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NZ USAR Steering CommitteeChair: MCDEMHans Brounts
National Co-ordination
Team
Task Force Leaders
Response Operations Working Group
Jim Stuart-Black
Specialist Skills Working Group
Dave Brunsdon
Promotions & Marketing Function
International Development
& Co-ordn Function
Medical Advisory Group
Engineering Advisory Group
NZ USAR Search
Dog Assn
Response Team Leader
Rep
The management/operational responsibilities that the original Steering Committee previously combined with governance is now being delivered in a different manner through the Response Operations and Specialist Skills working groups.
1.3 Current Capability
As at December 2005, the New Zealand USAR capability comprises the National Support Team, 3 Task Force Teams and 14 Registered Response Teams, in addition to other local rescue teams. As at the end of 2005, a total of 585 people had attained Orange Card (Cat 1R) status.
The capabilities of the National Support Team, Task Force and Registered Response Teams can be summarised as follows:
National Support Team
The National Support Team provides a leadership support role in both the day-to-day management and deployment of Task Force resources, and comprises five senior NZFS managers and a MCDEM Emergency Management Advisor.
Task Forces
One national capability comprising three self-contained Task Forces (NZTF1-3) capable of undertaking medium level structural collapse rescue operations over extended periods of time in accordance with INSARAG standards.
Each Task Force has approximately 45 members, comprising 32 Cat 2 USAR Technicians along with USAR Medics, Canine Search Specialists and Structural Engineers in addition to personnel providing logistics and planning/ intelligence support.
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The Task Forces are based in Palmerston North (NZ-TF1), Christchurch (NZ-TF2) and Auckland (NZ-TF3), and are capable of deploying as part teams, individual teams or as a combined national team.
Specialist skill personnel are a national resource that are interoperable with any Task Force team
There are at least two USAR Medics associated with each Task Force team (a total of 8 trained as full USAR Technicians) plus two trauma doctors
There are 6 Canine Search Specialists and dogs trained to Basic requirements and one to Advanced level that can be responded to assist Task Force teams.
A total of 13 structural, civil and geotechnical engineers have attained USAR Level 2 (Advanced) Engineer status and are available to be deployed as advisers to the Task Forces.
Registered Response Teams
Registered Response Teams are organised through individual CDEM Groups, and have a much wider scope of capabilities than just USAR. Within the USAR context, they are capable of undertaking surface search and rescue operations, with 24 hour self-sufficiency and a light rescue cache as a minimum.
To achieve registration a team has to reach required standards, and they are subject to regular audit to confirm their ability to maintain these standards. Each registered team comprises a minimum of 6 people, all of whom are trained to USAR Cat 1R standard.
The establishment of appropriate operational linkages between Response Teams and the Task Forces is an area of current emphasis.
There are 14 registered Response Teams located as follows:
NZ-RT1 Environment Canterbury Rescue And Technical Support Team
NZ-RT2 Nelson-Tasman Emergency Response Team
NZ-RT3 Waitakere City Council Initial Response Unit
NZ-RT4 Palmerston North City Council Rescue Emergency Support Team
NZ-RT5 North Shore City Council Initial Response Unit
NZ-RT6 Taupo District Council Rescue Emergency Response Team
NZ-RT7 Victoria University USAR Response Team
NZ-RT8 Wellington City Council Tawa Rescue
NZ-RT9 Upper Hutt Community Rescue
NZ-RT10 Christchurch City Council Rescue
NZ-RT11 Christchurch USAR Response Support And Rescue
NZ-RT12 Waimakariri Emergency Response Team
NZ-RT14 Christchurch Urban Response Team
NZ-RT15 Bay of Plenty Rescue Emergency Response Team
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2. Strategic Direction
Purpose
The government goals relevant to USAR as embodied in the Ministry of Civil Defence & Emergency Management and Fire Service strategy documents are:
Resilient New Zealand – communities understanding and managing their hazards
National CDEM Strategy
Building Safer Communities
NZFS Strategic Goal
Having an integrated national USAR capability is an integral part of developing community resilience.
Objectives
NZ USAR contributes towards the above goals by focusing on the following objectives:
1. The development and maintenance of an urban search and rescue capability based upon national and international best practice.
2. Urban rescue operations associated with a single–site structural collapse to be carried out using New Zealand resources in support of local emergency response agencies.
3. Rescue operations at a multi-site structural collapse to be undertaken using New Zealand and international resources.
4. Rescue operations in a regional scale disaster to be prioritised and undertaken using New Zealand and international resources.
Objectives 2, 3 and 4 are closely related to the three different scales of event that NZ’s USAR capability has been developed to respond to, which in turn reflect the NZ risk context.
Strategic Direction and Goals
The overall Strategic Direction for the period of this plan is to unify the components of USAR in New Zealand.
The three Strategic Goals based on current AND future needs are:
Sustainable Arrangements
Maximum Interoperability with other agencies and SAR elements
Integrated Teams, People and Partnerships
These goals reflect both the practical requirements that a national USAR capability needs to be able to effectively deliver the rescue capability into the future and the principal challenges experienced to date in developing this capability.
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The Strategic Priority Activities corresponding to these goals are summarised in Section 4.
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3. Key Organisational Roles and Responsibilities
In reviewing current and future arrangements, the Steering Committee has agreed that:
1. MCDEM is the logical independent facilitator at governmental level with respect to international linkages, in addition to having the statutory and functional links with CDEM Groups. It is therefore appropriate for MCDEM to continue as Steering Committee Chair
2. NZFS should take a stronger role in leadership of the operational aspects of USAR, reflecting the role clarity and well-resourced nature of NZFS rescue arrangements
The Steering Committee has proposed that the key roles and responsibilities of the initiating agencies of the Committee be as follows:
Ministry of Civil Defence & Emergency Management
Relationships & Capability Development
Maintaining international and national government level relationships and arrangements in accordance with INSARAG and UNDAC frameworks, including for the receipt and deployment of international USAR teams
Managing the relationship across the USAR Steering Committee organisations as Chair of the Steering Committee, and maintaining communication with all USAR stakeholder organisations and individuals
Monitoring strategic capability requirements and instigating new developments via sector linkages
Joint leadership of the Specialist Skills Working Group
Response Teams
Development and registration of Response Teams (both TA-based and private), including training frameworks
National Exercise Programme
Develop and maintain an exercise programme that tests the skills of all facets of multi-agency response and recovery operations
New Zealand Fire Service
Operational Management & Policy
Responsible for leading the operational and delivery aspects associated with USAR. This includes an integrated capability between the specialist USAR Task Force teams, Registered Response Teams and core NZFS operational staff.
Representation at the INSARAG Team Leaders Forum
Leadership of the Response Operations Working Group and co-ordinating the National Support Team.
Joint leadership of the Specialist Skills Working Group
Monitoring and review of NZ USAR operational capability
Maintaining the national USAR resource database
Task Forces
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Provisioning, maintenance and management of multi-agency Task Forces and associated structures
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Training
Co-ordinating the development and maintenance of training standards and qualifications that are consistent across NZ agencies and with international standards.
Australasian Fire Authorities Council (AFAC) - USAR
The New Zealand Fire Service is a member of the AFAC USAR Steering Committee.
The role of the committee is to assist Fire Services to implement an effective, structured, robust, interoperable, multi-agency capability for preparation, response and recovery from local, interstate and international structural collapse emergencies and from disasters requiring USAR response.
International Search & Rescue Advisory Group (INSARAG)
The New Zealand Fire Service and the Ministry of Civil Defence & Emergency Management jointly support INSARAG activities.
INSARAG ensures that search and rescue teams meet the INSARAG guidelines requirements by having the appropriate, internationally accepted skills and competencies.
These responsibilities and their linkage with funding arrangements are shown diagrammatically on the following page.
With respect to the Steering Committee and Working Groups, the focus is summarised as follows:
Steering Committee – strategic direction setting, project prioritisation and resourcing
Working Groups – delivery of operational capability and associated agreed outcomes and activities
Response Operations – preparedness and delivery of USAR operations
Specialist Skills – integration of the specialist skills disciplines into USAR planning and operations
The strategic direction, work programme and budget for each Working Group is defined in Terms of Reference signed off by the Steering Committee. Each Working Group is responsible for its own secretarial functions and for maintaining appropriate records, according to their terms of reference and organisational requirements.
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Urban Search and RescueNZFS
FunctionsMCDEM
FunctionsSteering Committee
MCDEM (chair) NZFS
NZ Police Ambulance NZ
Local Government NZ
Task ForcesProvision, maintenance and management of multi-agency
taskforces and associated structures
NZ USAR Team
Comprises 3 Task Forces complete with specialists and Registered Response Teams
Relationships INSARAG UNDAC
Govt agencies NZ Aid
Operational ManagementOversight and management
during operational deployment
Registered Response Teams
Development and registration of RRT’s both TA and private
TrainingProgram development and
delivery
Ian Craig Scholarship
PolicyDevelopment and
deployment of operational policy
National ExerciseDevelop an exercise program
that tests the skills of all facets of multi-agency response and recovery
operations
Relationships AFAC
INSARAG
Joint MCDEM/NZFS ActivitiesResponse Operations
Working GroupMulti-agency group led by
NZFS
Specialist Skills Working Group
Engineers Search dogs
MedicsMulti-agency group jointly led by NZFS and MCDEM
Management of Operational (Database) Website
Publication of USAR documentation
Course material FactSheets/ Guidelines
Management of Information/ Promotional Website
NZFS JOINT NZFS/MCDEM MCDEM
FUNDING ARRANGEMENTS
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4. Strategic Priority Activities 2005 – 2009
Strategic Goal 1: Sustainable Arrangements
IssuesRequired Outcome & Action
PlanResponsibility
Target Time Frames
05/0606/07
07/0808/0
9
1.1 Development of sustainable management & systems Governance processes for reviewing
and approving business plans and budgets and for reporting to Chief Executives to be documented
USAR Steering Committee annual procedures document Steering Cttee
Annual business planning, budget preparation, submission and reporting processes documented.
Annual Business Plan and Work Programme; calendar of programmed events (refer Appendix B)
Steering Cttee & WGs
Roles and responsibilities of Task Force Leaders, National Support Team members, Response Team Leaders to be defined
USAR Management Manual prepared – core sections initially (incl. delegations, Health & Safety), then additional sections progressively.
To include update of deployment guidelines/ instructions (including Registered Response Teams)
Response Operations WG
Capability audit process defined (paper based and physical review)
Response Operations WG
Strategic and operational risks identified and actively monitored
Risk register established Steering Cttee & Nat Support Team
1.2 Systematic provision and maintenance of equipment
Identify base location for NZ-TF3 and organiseIdentify equipment gaps to Medium level and purchase
Response Operations WG
1.3 Succession planning framework for Task Forces
Prepare succession planning procedures for Task Forces, Specialist Skills strands and Registered Response Teams
Response Operations WG
1.4 Succession planning framework for Specialist Skills strands
Specialist Skills WG
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Strategic Goal 2: Maximum Interoperability With Other Agencies & SAR Elements
Issues Required Outcome & Action Plan ResponsibilityTarget Time Frames
05/0606/0
707/0
808/0
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2.1 Limited knowledge of USAR capability, delivery focus and operational mechanisms across agencies with incident management responsibilities
Prepare a stakeholder management plan defining relationships with UNDAC, Emerg. Management agencies, LandSAR, CIMS Steering Committee
Develop a clear marketing & promotion programme to agencies with incident management responsibilities. Emphasis to be placed on the delivery focus and examples of interoperability with the wider rescue sector (refer outline of Marketing & Communications Framework in Appendix C)
Prepare Fact Sheet which sets out the delivery focus:
Declared emergencies - USAR delivered to the community, TAs and other sectors via the CDEM Groups
Non-declared emergencies - USAR is delivered to the Emergency Services
Steering Committee & Nat Support Team
2.2 Comprehensive skills maintenance programme which integrates training with a national exercise programme
Development of ongoing skills maintenance programme, training location(s) and arrangements
Prepare national exercise programme (integrated with regional CDEM Group exercise programme)
Response Operations WG
2.3 Response Teams are not operationally linked to Task Force structures
Integrate the deployment mechanisms between Task Forces and Response Teams
Establish specific linkages between NZ-RTs and Specialist Skills
Response Operations WG
2.4 Clarify international deployment capability and mechanisms
Meet with key govt agencies (Defence, NZ Aid)
Steering Committee
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Prepare paper on the logistical implications of mounting an international response, incl. costs
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Strategic Goal 3: Teams, People and Partnerships
Issues Required Outcome & Action Plan ResponsibilityTarget Time Frames
05/06
06/07
07/08
08/09
3.1 Progress joint approaches with Australia
Finalise high-level agreement to exchange USAR information and the development of appropriate mechanisms
Steering Committee
3.2 Engineers – mechanisms to maintain operational linkages with USAR engineers in non-TF locations
Develop & document an appropriate process (linked with the need for annual training engagement)
Specialist Skills WG
3.3 Medics – linking their developmental work in with the Health sector with respect to pre-hospital care
Meet Ambulance Service providers plus Ministry of Health representative Specialist Skills WG
3.4 Canine Search – clarifying deployment mechanisms with respect to Task Forces and Response Teams
Produce an integrated deployment protocol and put appropriate agreements and arrangements in place
Response Operations WG & Specialist Skills WG
3.5 Continued development of Information Technology
Define, resource and manage a work programme, including website development (promotional and operational sites) and maintenance of the USAR database
NZFS & MCDEM
3.6 Establish an appropriate research & development capability
Examine whether NZ needs to have a heavy rescue capability as defined by INSARAG.Use international USAR agencies to (i) keep up with current developments and (ii) establish linkages with those who are leading the development of USAR
NZFS
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5. Strategic Risks
There is a need to systematically address the strategic risks to the development and delivery of USAR in New Zealand corresponding to the issues and outcomes identified in the tables of the preceding section. Appropriate mitigation measures are to be developed where considered necessary.
The Steering Committee under its work programme will establish the risk management process, including the initial production of a risk register (refer Activity Item 1.1). The regular review and and updating of this register will be embedded within annual processes.
The principal categories of risk under consideration relate to organisational, financial and human resource risks.
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Appendix A – Responsibilities of the USAR Steering Committee
(extract from the March 2005 Steering Committee Charter)
RESPONSIBILITIES
The responsibilities of the Committee are to provide strategic direction, governance and support to all elements of USAR New Zealand to;
1) ensure the development of policy and frameworks within which the objectives of the national USAR capability can be met.
2) establish the linkages between all of the agencies which contribute to the national USAR capability.
3) ensure that international and national best practice standards are implemented for USAR qualifications and training.
4) ensure that the approved USAR Task Forces, Registered Response Teams and other specialist skill assets are appropriately resourced and capable of being deployed; the Committee, as part of its responsibilities, will request that sufficient funding is available from government for that purpose
5) ensure that appropriate arrangements are in place for international teams coming into New Zealand to give assistance, and for New Zealand teams who may provide assistance overseas.
6) establish and maintain a national exercise programme to test and evaluate USAR capability.
7) monitor and report on the integrated USAR capability to all stakeholders
8) establish and maintain all the components of a comprehensive, multi agency USAR capability.
9) ensure operational readiness of all elements of the USAR capability.
10) ensure integration of the USAR capability within CDEM and NZFS operational arrangements
Subject to a majority decision of its members, the Committee may from time to time alter or add to the above responsibilities.
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Appendix B:Annual Calendar of Planning & Reporting Processes
MonthSteering Cttee Working Groups Task Force Leaders
Mtg Activity Focus Mtg Activity Focus Mtg Activity Focus
JulyEnd of year report Implementing Work Programme Implementing Business etc plans
August
September
October
Monitor implementation of work programme; update Strat Plan and identify strat risks (issue to W/Gps & TFLs)
Develop for next FY own: Business Plan Training plan Exercise Plan Equipment purchase/ upgrade
list
Submit to NZFS & S/Cttee
November
Advertise Ian Craig Scholarship Meet to progress Work Programme activitiesDevelop own Work Programme for next FY & update TORSubmit to S/Cttee
December
JanuaryReview Ian Craig Scholarship applications
FebruaryReview W/ Group & TF draft plans & budget (remote)Award Ian Craig Scholarship Finalise Work Programme & budget Finalise Business Plan & budget
MarchApprove work programme & budget for next FY
April
MayCompleting Work Programmes Commencement of end of year reporting
Completing Business etc plan activities Commencement of end of year reporting
June
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Appendix C:Outline of Marketing & Communications Framework
Agencies/ SectorsNZFS Police Health ODESC CDEM Gps/ TLAs Other Groups1
Who Nat Commanders Exec briefing
Reg Commanders briefing
District Operations Commanders
Operational Managers
CEOs of Govt Depts comprising ODESC
CEG
Controllers
Group EMOs
See note below
Why How to deploy USAR capability
How integrated via CIMS
Respective agency roles
Base level training & interaction on medical aspects
Capability status Understand TF role, resource capability; context of RRT; deployment procedures, incident control arrangements etc
Understand TF role, resource capability; deployment procedures, where they fit
What/ How
Briefing notes
ComCen SOP
ComCen SOP plus Fact Sheet
ComCen SOP
Build into decision-making algorithm
Bullet point on agenda
Presentations
Segment in Controllers course
Adaptable presentation package Annual reports from S/Cttee (capability status)
1Other Stakeholder Groups/ Agencies include Mines Rescue, LandSAR, Toll Rail
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