​1.1 Authorising Environment

The Disaster Management Act 2003 (the Act) and the Disaster Management Regulation 2014 (the Regulation) forms the legislative basis for disaster management within all levels of government and Queensland's disaster management arrangements. As per section 63 of the Act, the Commissioner, Queensland Fire and Emergency Services (QFES) has the authority and accountability for the preparation and management of disaster management guidelines. The authorising environment for disaster management documents is detailed in Figure 1.1 below.

Figure 1.1 Disaster management documents authorising environment.

1.2 Aim

The aim of the Queensland Prevention, Preparedness, Response and Recovery Disaster Management Guideline (the Guideline) is to provide flexible, good practice suggestions and advice to those responsible for implementing disaster management practices. The Guideline complements legislative responsibilities and provides guidance supporting the implementation of legislation, the Queensland Disaster Management Strategic Policy Statement (SPS), the Queensland State Disaster Management Plan (SDMP), the Standard for Disaster Management in Queensland (the Standard) and other key documents.

As per section 63 of the Act, the Commissioner, QFES (as 'Chief Executive') is responsible for the preparation of guidelines to inform the state group, district groups and local governments within Queensland's disaster management arrangements about matters relating to:

• the preparation of disaster management plans
• the matters to be included in a disaster management plan
• other matters about the operation of a district group or local group the Chief Executive considers appropriate having regard to disaster management for the state

This Guideline is augmented with a suite of non-mandatory toolkit items, including manuals, reference guides, forms, templates, maps, diagrams, handbooks and links to related publications, designed to support stakeholders to fulfil their disaster management responsibilities to the Queensland community. These toolkit items are referenced throughout the document and can also be accessed from the Queensland Government Disaster Management website (https://www.disaster.qld.gov.au).

L.1.028 Chief Executive Administrative Arrangements

Further specific functional responsibilities of the Commissioner, QFES are further detailed in other relevant toolkits.

1.3 Guiding Principles

All events, whether natural or caused by human activity, should be managed in accordance with the Act, SPS, the Standard, the SDMP and any relevant disaster management guidelines.

Under section 4A of the Act, disaster management in Queensland is based on four principles:

• comprehensive approach
• all hazards approach
• local disaster management capability
• support by the state group and district groups to local governments.

1.3.1 Comprehensive approach

The comprehensive approach to disaster management comprises four phases: prevention, preparedness, response and recovery (PPRR) to ensure a balance between the reduction of risk and the enhancement of community resilience, while ensuring effective response and recovery capabilities.

The four phases of PPRR are not linear nor are they independent of the others. They overlap and support each other as shown in Figure 1.2. For example, recovery activities are likely to begin during the response phase and mitigation strategies may be considered during the recovery phase.

Figure 1.2 The ‘comprehensive approach’ to disaster management.

1.3.2 All hazards approach

The all hazards approach assumes that the functions and activities used to manage one event are likely to be applicable to a range of events, whether natural or caused by human activity.

1.3.3 Local disaster management capability

Local level capability is recognised as the frontline for disaster management, primarily due to the benefits of localised knowledge and networks. As per section 4A(c) of the Act, local governments are primarily responsible for managing events in their local government areas (LGAs) and this is provided
through their Local Disaster Management Group (LDMG).

1.3.4 Support by district and state groups

To ensure the LDMG is able to effectively undertake disaster operations, Queensland’s disaster management arrangements divides Queensland into 22 disaster districts with each district comprising one or more LGAs (and therefore LDMGs). The Act establishes a District Disaster Management Group (DDMG) for
each district, to provide support when required or requested by a LDMG. The Queensland Disaster Management Committee (QDMC) can provide additional support and assistance when required or requested by a DDMG.

1.4 Collaboration and Interoperability

Disaster management in Queensland requires local, district and state groups, government agencies and non-government organisations (NGOs) to work effectively together under Queensland’s disaster management arrangements.

Groups at each level of Queensland’s disaster management arrangements (local, district and state) must consider how they can best collaborate, consult, communicate and ensure interoperability with key stakeholders (e.g. community members or groups, essential service providers, agencies, key tourism and transport operators and NGOs).

In accordance with section 48A of the Act, disaster management groups at all levels must consult with essential service providers (e.g. gas, electricity, telecommunications, water and sewage infrastructure) if their Chairperson considers they can help the group perform its functions.

1.5 Continuous Improvement and Innovation

1.5.1 Continuous improvement

The practice of continuous improvement involves the regular evaluation, and subsequent improvement, of processes and arrangements to ensure they remain relevant, efficient, effective and flexible. Disaster management stakeholders, researchers, educators, policy makers and the community have a joint responsibility to ensure continuous improvement initiatives are shared across the disaster management sector to promote innovation, efficiency and efficacy.

1.5.2 Innovation

Innovation is more than improving existing methods, processes or products; it must also encompass finding the best, fit-for-purpose solutions to achieve identified outcomes.

Disaster management stakeholders are encouraged to seek and explore opportunities for innovative solutions to meet the needs of the Queensland community across all phases of disaster management.

1.5.3 Lessons Management

Lessons management is a key element of continuous improvement and disaster management stakeholders in Queensland are urged to apply this learning practice. It involves the identification and learning of lessons captured through evaluation activities (including debriefing, monitoring and reviews) occurring before, during and after emergencies. It includes the establishment of a learning culture to support the capturing of observations and insights from monitoring, debriefing and review activities, which are then analysed for trends, risk and lessons. Lessons are then assessed for action, which are in turn implemented and monitored for change and improvement.

It is strongly recommended that the strategy applied by disaster management stakeholders be consistent with The Australian Institute for Disaster Resilience Handbook for Lessons Management.

More information on The Australian Institute for Disaster Resilience Handbook for Lessons Management can be found at their website.

1.6 Climate Change

Queensland’s climate is changing, and climate adaptation action is essential for the continued prosperity of our communities, our environment and our economy. As stated in the Queensland Climate Adaptation Strategy:

• Climate adaptation refers to actions taken to reduce the negative impacts of climate change, or to take advantage of emerging opportunities. Adaptation involves going above and beyond traditional preparedness for climate variation, natural hazards and disaster events. It requires developing a comprehensive understanding of how a changing climate will affect Queensland, our regions and our communities, and actively working to reduce our exposure to climate risks and to capture any new opportunities. Successful adaptation to climate change is a proactive and long-term process.

Over the past 10 years, successive Queensland Governments have partnered with businesses and communities to prepare for climate impacts and reduce exposure to climate risks through adaptation work and activities.

A global driver for this collaboration is the widespread ratification by members of the United Nations Framework Convention on Climate Change of the Paris Agreement, which aims to reduce carbon emissions and decarbonise the global economy. The Australian Government ratified the Paris Agreement in November 2016, and in 2022 committed to reducing Australia’s emissions by 43 per cent below 2005 levels. The Agreement also addresses adaptation issues such as enhancing adaptive capacity, strengthening resilience and reducing vulnerability to climate change, as well as loss and damage associated with the adverse effects of climate change and extreme weather events.

In 2017, the Queensland Climate Adaptation Strategy (Q-CAS) was released, providing a framework for ensuring an innovative and resilient Queensland that manages the risks and harnesses the opportunities of a changing climate. The Q-CAS is centred around a partnership approach that recognises that climate adaptation is everyone’s responsibility, and that a collaborative approach is needed to ensure resilience is embedded in Queensland’s diverse economies, landscapes and communities. The Q-CAS is structured around four pathways: People and Knowledge, State Government, Local Governments and Regions and Sectors and Systems. The development of Sector Adaptation Plans are an initial action of the Q-CAS under the Sectors and Systems pathway.

The Emergency Management Sector Adaption Plan for climate change (EM-SAP) provides a vision for the emergency management sector and a series of principles and priorities to achieve climate adaptation. The EM-SAP supports the emergency management sector to manage the risks associated with a changing climate and to harness the opportunities provided by responding to the challenges. The EM-SAP ensures relevance and the participation of sector stakeholders, encourages sector leadership and promotes adaptation initiatives.

Toolkit

• Queensland Climate Adaptation Strategy (Q-CAS)
• Emergency Management Sector Adaptation Plan (EM-SAP) for climate change (PDF, 3.3 MB)
• Factsheet: Emergency Management Sector Adaptation Plan for Climate Change (PDF, 415.4 KB)
• Factsheet: Climate Change in Queensland (PDF, 352.7 KB)
• Sector Adaptation Plans
• Queensland Emergency Risk Management Framework

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