NZ USAR Strategic Plan 2005 – 2009

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

NZ USAR Strategic Plan 2005-2009 December 2005

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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

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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)


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


1.3 Succession planning framework for Task Forces

Prepare succession planning procedures for Task Forces, Specialist Skills strands and Registered Response Teams


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)


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


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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NZ USAR Strategic Plan 2005 – 2009

Documents

Transcript of NZ USAR Strategic Plan 2005 – 2009