Source document: https://docs-lawep.s3.us-east-2.amazonaws.com/1698834185941.pdf (New Zealand)
National Civil Defence Emergency Management Plan Order 2005 (SR 2005/295) Pursuant to sections 39(1) and 45(b) of the Civil Defence Emergency Management Act 2002, Her Excellency the Governor­General, act­ ing on the recommendation of the Minister of Civil Defence and on the advice and with the consent of the Executive Council, makes the following order.
Contents Title Commencement National civil defence emergency management plan Publication in other forms not prohibited Schedule National civil defence emergency management plan Appendix 1 National warnings Appendix 2 NCMC modes Page 1 1 2 2 2 72 73 Title This order is the National Civil Defence Emergency Manage­ ment Plan Order 2005.

Commencement This order comes into force on 1 July 2006.

1 2 3 4 1 2 Note This order is administered in the Department of Internal Affairs.
1 National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 National civil defence emergency management plan The national civil defence emergency management plan (in­ cluding its appendices) set out in the Schedule is made.

The period for which the national civil defence emergency management plan remains operative begins on 1 July 2006 and ends on the close of 30 June 2011.
Publication in other forms not prohibited To avoid doubt, nothing in this order prohibits the publication of the national civil defence emergency management plan, in whole or in part, in a style suitable for particular users of the plan, including, but not limited to, publication— (a) in a different format; or (b) with or without graphics; or (c) with or without additional material.
Schedule National civil defence emergency management plan Contents cl 3 Page Contents Part 1 Introduction General Interpretation Status Incorporation by reference Part 2 Purpose, objectives, and scope of plan cl 3 3 (1) (2) 4 1 2 3 2 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule Purpose of plan Objectives of plan Relationship of objectives to national civil defence emergency management strategy Scope of plan Capacity and capability Part 3 Hazards and risks Hazards and risks to be managed at national level Part 4 Statutory basis for managing national emergencies Minister’s power Other emergency situations Government crisis management arrangements System of domestic and external security co­ordination (DESC) Ministry of Civil Defence and Emergency Management(MCDEM) Other agencies Statutory ofﬁcers Director of Civil Defence Emergency Management (Director) National Controller Part 5 Roles and responsibilities of various organisations 3 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 General Maintaining government General responsibilities CDEM Groups Civil Defence Emergency Management Groups (CDEM Groups) Emergency services generally Background Principles common to emergency services Police Principles of police involvement Role of police Police operations Fire service Background Fire service roles Fire service public information Health services General Ministry of Health District Health Boards (DHBs) Public health Ambulance Lifeline utilities 26 27 28 29 30 31 32 4 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 50 Duties of lifeline utilities Lifeline utilities co­ordination Lifeline utility co­ordinators Clusters Clusters at national level Clusters at local level Formed and proposed clusters Cluster co­ordinators Part 6 Welfare Background
 Principles Process National welfare co­ordination National Welfare Recovery Co­ordination Group (NWRCG) functional arrangements Financial assistance (Ministry of Social Development) Accommodation (Housing New Zealand Corporation) Inquiry and identity (MCDEM) Domestic animal welfare Psychosocial support Support agencies with role in welfare provision Part 7 Readiness 5 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 51 52 53 54 55 56 57 58 Principles Preparation Nationwide levels of civil defence emergency management operation Areas of readiness Co­ordinated incident management system (CIMS) Public education Professional development Exercise programmes Part 8 Response 59 Principles General warnings Objective Scope National warning system National Crisis Management Centre Functions of National Crisis Management Centre (NCMC) Principles of NCMC activation MCDEM uses NCMC to manage civil defence emergencies Emergency information management Objective Context 60 61 62 63 64 65 66 67 6 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 68 Principles Public information management 69 70 71 72 73 74 75 76 77 78 79 80 81 82 83 Purpose Scope Principles National roles Mass evacuation Objective and scope Types of evacuation Principles of evacuation Deciding to shelter in place or evacuate Identifying evacuees Process for evacuation International assistance for New Zealand Introduction Requests for international assistance Offers of international assistance United Nations Ofﬁce for the Coordination of Humanitarian Affairs (OCHA) Ministry of Foreign Affairs and Trade Part 9 Recovery Civil defence emergency management recovery 84 Scope 7 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 85 86 87 88 89 Transition from response to recovery Process of civil defence emergency management recovery Exit strategy Part 10 Government
 ﬁnancial support Government ﬁnancial support for civil defence emergencies Principles for government ﬁnancial support Appendix 1 National warnings Appendix 2 NCMC Modes Preamble 1 Introduction General Interpretation In this plan, unless the context otherwise requires,— 4 Rs means— (a) reduction (identifying and analysing long­term risks to human life and property from natural or non­natural hazards; taking steps to eliminate these risks if practic­ able, and, if not, reducing the magnitude of their impact and the likelihood of their occurring); and readiness (developing operational systems and capabil­ ities before a civil defence emergency happens, includ­ (b) 1 8 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 1—continued (c) (d) ing self­help and response programmes for the general public, and speciﬁc programmes for emergency ser­ vices, lifeline utilities, and other agencies); and response (actions taken immediately before, during, or directly after a civil defence emergency to save lives and property, and to help communities recover); and recovery (the co­ordinated efforts and processes used to bring about the immediate, medium­term, and long­ term holistic regeneration of a community following a civil defence emergency) Act means the Civil Defence Emergency Management Act 2002 agencies means— (a) government agencies, including public service depart­ ments, non­public service departments, Crown entities, and Ofﬁces of Parliament; and non­governmental organisations; and lifeline utilities (b) (c) CDEM Group or Civil Defence Emergency Management Group means a group established under section 12 of the Act CIMS means the co­ordinated incident management system civil defence emergency management has the same meaning as in section 4 of the Act cluster means a group of agencies that interact to achieve com­ mon civil defence emergency management outcomes CYF means the Department of Child, Youth and Family Ser­ vices
 DESC means the system of domestic and external security co­ordination used by the Government to manage all national crises DHB means district health board, and includes hospital and health services (including ambulance services) Director has the same meaning as in section 4 of the Act DPMC means the Department of the Prime Minister and Cab­ inet ECC means Emergency Co­ordination Centre 9 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 1—continued emergency has the same meaning as in section 4 of the Act emergency services has the same meaning as in section 4 of the Act EOC means Emergency Operations Centre and encompasses ECC ﬁre service includes the ﬁre service units maintained by the New Zealand Fire Service, National Rural Fire Authority, rural ﬁre authorities, airport rescue ﬁre services, New Zealand De­ fence Force, industrial ﬁre brigades registered under section 36 of the Fire Service Act 1975, and other ﬁre service re­ sources owned by private organisations hazard has the same meaning as in section 4 of the Act lifeline utility has the same meaning as in section 4 of the Act MCDEM means the Ministry of Civil Defence and Emer­ gency Management, which is the agency in central govern­ ment that co­ordinates the civil defence emergency manage­ ment necessary during states of national emergency or civil defence emergencies of national signiﬁcance Minister has the same meaning as in section 4 of the Act National Controller has the same meaning as in section 4 of the Act national signiﬁcance has the same meaning as in section 4 of the Act NCMC means the National Crisis Management Centre NWRCG means the National Welfare Recovery Co­ordin­ ation Group OCHA means the Ofﬁce for the Coordination of Humanitarian Affairs, which is an ofﬁce of the United Nations ODESC means the Committee of Ofﬁcials for Domestic and External Security Co­ordination Recovery Co­ordinator has the same meaning as in section 4 of the Act
 risk has the same meaning as in section 4 of the Act state of emergency has the same meaning as in section 4 of the Act 10 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 1—continued state of local emergency has the same meaning as in section 4 of the Act state of national emergency has the same meaning as in sec­ tion 4 of the Act supporting documentation includes detailed explanations, the Director’s guidelines, standard operating procedures, codes, and technical standards The Guide means The Guide to the National Civil Defence Emergency Management Plan that is issued by the Director under section 9(3) of the Act the strategy means the national civil defence emergency man­ agement strategy completed under section 31 of the Act this plan means the national civil defence emergency manage­ ment plan.
2 Status This plan— (a) (b) (c) (d) (e) may be amended or replaced in accordance with the Act is made under sections 39(1) and 45(b) of the Act; and replaces the national civil defence plan; and has no transitional provisions; and becomes operational on 1 July 2006; and (f) at any time; and must, before the close of 30 June 2011, be— (i) (ii) reviewed; and renewed or replaced.
3 (1) Incorporation by reference Section 40 of the Act allows incorporation by reference of ma­ terial that is too large or otherwise impractical to be printed as part of this plan.

(2) No documents are incorporated by reference under this plan; however other materials are mentioned.
11 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 2 Purpose, objectives, and scope of plan Purpose of plan The purpose of this plan is to— (a) state the hazards and risks to be managed at the national level; and provide for the civil defence emergency management arrangements to meet those hazards and risks.
(b) Objectives of plan The ﬁrst objective of this plan is to provide for effective man­ agement of states of national emergency or civil defence emer­ gencies of national signiﬁcance through a planned and co­or­ dinated whole­of­government response.

The second objective of this plan is to provide for effective recovery from states of national emergency and civil defence emergencies of national signiﬁcance through a planned and co­ordinated whole­of­government response.
The third objective of this plan is to provide for effective management of national support in states of local emergency through a planned and co­ordinated whole­of­government response.

Relationship of objectives to national civil defence emergency management strategy Section 31 of the Act requires the Minister to complete a na­ tional civil defence emergency management strategy.

The strategy was completed in March 2004.


The strategy includes— (a) the Crown’s goals in relation to civil defence emergency management in New Zealand; and the objectives to be pursued to achieve those goals; and the measurable targets to be met to achieve those ob­ jectives.
(b) (c) The goals of the strategy are— (a) goal 1: to increase community awareness, understand­ ing, and participation in civil defence emergency man­ agement; and 4 5 (1) (2) (3) 6 (1) (2) (3) (4) 12 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 2—continued (b) (c) (d) to reduce the risks from hazards to New goal 2: Zealand; and goal 3: to enhance New Zealand’s capability to manage emergencies; and goal 4: to enhance New Zealand’s capability to recover from disasters.
(5) Goal 1 is addressed in this plan by supporting objective B of the goal (improve community understanding and participation in civil defence emergency management).

Goal 2 is addressed in this plan by supporting objective D of the goal (improve the co­ordination of the Government’s policy relevant to civil defence emergency management).
(6) As this plan deals with the management of hazards and risks at the national level, this plan gives practical effect to the fol­ lowing goals and associated objectives of the strategy: (a) goal 3: enhancing New Zealand’s capability to manage civil defence emergencies, particularly objective E (en­ hancing the ability of government departments to pre­ pare for and manage civil defence emergencies) and ob­ jective F (improving the ability of the Government to manage civil defence emergencies of national signiﬁ­ cance); and goal 4: enhancing New Zealand’s capability to recover from civil defence emergencies, particularly objective A (implementing effective recovery planning and ac­ tivities for the physical impacts of emergencies) and objective B (implementing effective recovery planning and activities for the social and economic impacts of civil defence emergencies).
(b) 7 (1) (2) Scope of plan This plan, the Act, the strategy, the CDEM Group plans, the sector plans, the agency plans, and The Guide collectively de­ scribe the civil defence emergency management necessary at the national level.
This plan— (a) is a statement of— 13 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 2—continued (i) (ii) the national civil defence emergency manage­ ment arrangements that are in place or being de­ veloped on the date that this plan is made; and the principles, arrangements, commitments, and frameworks that apply to the management of states of national emergencies and civil defence emergencies of national signiﬁcance (the detail of how this is to be delivered is set out in The Guide); and addresses emergencies where communities’ and agen­ cies are overwhelmed and demand on resources may exceed those available at the local, regional, or national level; and is written for agencies that have a role to play during either a state of national emergency or a civil defence emergency of national signiﬁcance and will inform their planning, response, and co­ordination during such an emergency; and explains how central government may support CDEM Groups in their management of states of local civil de­ fence emergencies; and becomes operative on 1 July 2006; and is supported by The Guide, which— augments this plan; and (i) includes additional material; and (ii) is approved by the Government; and (iii) is to come into force on 1 July 2006.
(iv) (b) (c) (d) (e) (f) (3) Nothing in this plan prevents the national support of local emergency management, and the co­ordination of that support, in local emergencies or other events.

Capacity and capability 8 (1) New Zealand has ﬁnite capacity and capability for deployment in response to, or recovery from, a state of national emergency or a civil defence emergency of national signiﬁcance.

Effective response and recovery may necessitate mobilisation of all available resources.
(2) 14 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 2—continued (3) Mobilisation of appropriate capacity is achieved through— (a) the activation of government crisis management ar­ rangements; and (c) (b) MCDEM, as lead agency, co­ordinating, controlling, and directing in accordance with its responsibilities under the Act; and agencies being ready to meet their obligations under the Act and this plan; and agencies’ activation of commitments and obligations set out in this plan.
(d) (4) Planning for civil defence emergencies is an ongoing process and signiﬁcant work programmes are being undertaken to ad­ dress any issues that are identiﬁed.
(5) MCDEM— (a) is responsible for assessing resource requirements needed to manage civil defence emergencies at the national level; and (b) will monitor the capacity and capability of CDEM (c) Groups; and alert CDEM Groups, agencies, and the Government to any signiﬁcant shortcomings in national civil defence emergency management capacity and capability.
9 (1) 3 Hazards and risks Hazards and risks to be managed at national level This part states and provides for the hazards and risks to be managed at the national level and this plan identiﬁes the civil defence emergency management necessary at the national level to manage them.

(2) An emergency occurs when the safety of the public or prop­ erty is endangered and a signiﬁcant and co­ordinated response under the Act is required.
The emergencies covered by this plan include those traditionally managed by civil defence ar­ rangements and those indicated through the CDEM Group planning processes.

15 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 3—continued (3) Examples of emergencies include— (a) cyclone, natural disasters such as ﬂood, snow­storm, earthquake, volcanic, geothermal inci­ dent, tsunami, landslide, and lahar; and non­natural events such as lifeline utility failure.
storm, (b) (4) An emergency may be local or national in its effect.

National civil defence emergency management may be necessary to manage the consequences of hazards and risks if these result in either a state of national emergency or a civil defence emer­ gency of national signiﬁcance.
The latter includes, without limitation, any case where the Minister considers that— there is widespread public concern or interest; or (a) there is likely to be signiﬁcant use of resources; or (b) it is likely that the area of more than one CDEM Group (c) will be affected; or it affects or is likely to affect or is relevant to New Zealand’s international obligations; or it involves or is likely to involve technology, processes, or methods that are new to New Zealand; or it results or is likely to result in or contribute to signiﬁ­ cant or irreversible changes to the environment (includ­ ing the global environment).
(d) (e) (f) (5) The consequences of hazards and risks to be managed can in­ clude those relevant to human, economic, social, infrastruc­ ture, and geographic factors.

(6) A range of agencies other than MCDEM may take the lead in an emergency.

Indicative examples include the Ministry of Agriculture and Forestry (biosecurity), the Ministry of Health (pandemic), and the New Zealand Police (counter­terrorism).

Aspects of such emergencies can be managed under the Act and using parts of this plan.
In these cases, the responsibilities of the lead agency are in no way diminished even though a state of local or national emergency is declared under the Act to support that lead agency.

Civil defence emergency management arrangements may be activated to support lead agencies if these arrangements are included in those agencies’ plans.
(7) 16 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 4 Statutory basis for managing national emergencies 10 Minister’s power (1) Under section 66 of the Act, the Minister has the power to declare that a state of national emergency exists over the whole of New Zealand or any areas or districts.
The Minister can make the declaration only if it appears that the emergency is, or is likely to be, so severe that it is beyond the resources of the CDEM Group or CDEM Groups affected or likely to be affected.

(2) 11 (1) (2) (3) Other emergency situations In some circumstances, agencies may manage emergencies us­ ing this plan in combination with their own emergency man­ agement plans.
The arrangements set out in this plan may be used to support efforts to manage other emergencies (for example, an emer­ gency managed by a lead agency other than MCDEM).

If the impacts on the community cannot be dealt with by emer­ gency services, or otherwise require a signiﬁcant or co­ordi­ nated response, while other arrangements are in effect, a dec­ laration may be made under the Act to formally invoke the powers of the Act and the provisions of this plan.
Government crisis management arrangements 12 System of domestic and external security co­ordination (DESC) (1) DESC is used by central government for the management of signiﬁcant crises or security events where impacts of national signiﬁcance warrant the co­ordination of national effort.

(2) DESC operates at a strategic level to co­ordinate whole­of­ government planning and prioritising.
(3) DESC brings together information for ministers, co­ordinates analysis and development of options, and assists decision mak­ ing in Cabinet.

17 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 4—continued (4) DESC is collective without affecting the existing responsibil­ ities of ministers or departments.
(5) At the strategic level ODESC exercises policy oversight and advises the Prime Minister, Cabinet, and, when activated, the Cabinet Committee on Domestic and External Security Co­or­ dination chaired by the Prime Minister.

(6) At the operational level a lead agency (which is MCDEM in the case of a civil defence emergency) monitors and as­ sesses the situation, co­ordinates national support, reports to ODESC, and provides policy advice.
In a national emergency, the lead agency directs and manages operational responses on the ground.

(7) ODESC— (a) (b) is a group of senior ofﬁcials; and is chaired by the DESC co­ordinator, normally the chief executive of DPMC; and supports ministers in developing high­level strategic di­ rection, policy, and priorities, and in authorising addi­ tional resources to deal with crises; and is the strategic mechanism for co­ordinating a whole­ of­government response to events.
(c) (d) (8) ODESC is supported by government public service depart­ ments, non­public service departments, and groups of ofﬁcials drawn from those departments to provide a whole­of­govern­ ment overview, to address particular issues, and to co­ordinate strategic level public communications.
13 Ministry of Civil Defence and Emergency Management (MCDEM) (1) MCDEM is the agency in central government that co­ordi­ nates the civil defence emergency management necessary dur­ ing states of national emergency or civil defence emergencies of national signiﬁcance.
(2) At the operational level for civil defence emergency manage­ ment events, MCDEM— (a) monitors and assesses the impact at the site of the event; and 18 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 4—continued (b) (c) provides operational support for civil defence emer­ gency management activities at the local level; and co­ordinates the operational response of government and national resources during states of national emer­ gency or civil defence emergencies of national signiﬁ­ cance.
(3) When DESC is activated for civil defence emergency manage­ ment events, MCDEM, as lead agency, provides advice to, and takes strategic direction from, ODESC.

In fulﬁlling these functions, MCDEM will— (a) (4) use NCMC facilities and establish linkages with rele­ vant CDEM Groups and agencies; and co­ordinate clusters of agencies engaged in common areas of civil defence emergency management activity; and provide national co­ordination for recovery activities.
(b) (c) (2) Other agencies 14 (1) Other agencies with civil defence emergency management op­ erational roles will co­ordinate with MCDEM or through es­ tablished clusters to provide integrated and co­ordinated in­ ter­agency responses.

Each agency remains responsible for the management of its own response.

Particular agencies may be requested to be represented at the level of ODESC and report to ODESC on their respective area of responsibility and respond to strategic direction from ODESC.
(3) Statutory ofﬁcers 15 (1) Director of Civil Defence Emergency Management (Director) The responsibilities of the Director are, in part, to— 19 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 4—continued (a) (b) (c) (d) (e) (f) (g) co­ordinate, for the purposes of civil defence emer­ gency management, the use of resources made available under this plan; and during a state of national emergency,— (i) direct and control, for the purposes of civil defence emergency management, the use of re­ sources made available under this plan; and control the exercise and performance of the func­ tions, duties, and powers of CDEM Groups and group controllers; and (ii) ensure the Minister and ODESC are adequately briefed on the situation in a disaster area; and inform the Minister and ODESC of assistance likely to be required for response and recovery operations; and establish processes under this plan that will allow re­ sponse and recovery to be effected for the emergency; and recommend to Cabinet any special policies for imple­ mentation of civil defence emergency management sup­ port; and exercise the powers under sections 8(2) and 9(2) of the Act.
(2) The Director is a member of ODESC.

National Controller 16 (1) A National Controller can be— (a) (b) appointed by the Director; and delegated the Director’s functions and powers under sections 8(2)(h) and 9(2)(a) of the Act.
If appointed,— (a) a National Controller,— (i) during the state of a national emergency, directs, controls, and co­ordinates, for the purposes of civil defence emergency management, the use of resources made available under this plan; and (2) 20 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 4—continued (ii) during a civil defence emergency of national sig­ niﬁcance, co­ordinates national resources to sup­ port the local response; and a National Controller co­ordinates international oper­ ational support with the Ministry of Foreign Affairs and Trade.
(b) (3) If a National Controller is not appointed the Director retains the powers under sections 8(2)(h) and 9(2)(a) of the Act.

5 Roles and responsibilities of various organisations General 17 Maintaining government The machinery of government must continue to run, even at a reduced level.

18 (1) (2) General responsibilities The Act puts responsibilities on speciﬁed agencies.
These re­ sponsibilities include, at times of emergency, being able to— function to the fullest possible extent even though this (a) may be at a reduced level; and respond to the emergency as required.

(b) The Act requires all government agencies, local authorities, emergency services, and lifeline utilities to— (a) (b) plan for functioning during and after an emergency; and be capable of continuing to function to the fullest extent possible (albeit at a reduced level).
(3) All agencies are expected to develop, review, and improve their emergency plans.

Respective emergency­related roles may be detailed in The Guide.

(4) Agencies may have obligations under their own legislation to deal with hazards and consequences.

The Act and this plan do not affect these obligations.
21 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (5) Non­governmental organisations do not have speciﬁc respon­ sibilities under the Act but this plan acknowledges their im­ portance in a civil defence emergency.

The principal mechan­ ism for the national co­ordination of non­governmental organ­ isations with other agencies in response and recovery is via the NWRCG or through other relevant clusters.
CDEM Groups 19 (1) (2) Civil Defence Emergency Management Groups (CDEM Groups) CDEM Groups— (a) integrate and co­ordinate civil defence emergency man­ agement planning and activity; and respond to and manage the adverse effects of emergen­ cies in their areas; and are controlled by the Director or the National Controller during a state of national emergency.
(b) (c) Each CDEM Group— (a) (b) (c) (d) is a committee of elected representatives of local author­ ities in the region covered by the CDEM Group; and is supported by chief executives, hazard plans, EOCs and staff, and the involvement of communities of inter­ est at all levels; and has established cross­boundary agreements with other CDEM Groups; and can be viewed as a consortium of local authorities, emergency services, and others delivering civil defence emergency management in a co­ordinated manner according to their group plans and their community outcome process.
(3) During a civil defence emergency, cross­boundary consult­ ation may occur between group controllers, elected represen­ tatives, or group controllers and elected representatives.

An­ other CDEM Group may declare a state of local emergency if it is necessary to do so to support another area where a state of local emergency is in force.
22 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (4) CDEM Groups may be asked by the National Controller to activate their civil defence emergency management arrange­ ments in support of— (a) (b) (c) their own area, if they are not already active; or another area; or a national­level civil defence emergency, whether or not a declaration of a state of emergency has been made and irrespective of the type of emergency.
Emergency services generally 20 (1) (2) (3) (4) (5) (6) Background This part of this plan identiﬁes the roles of emergency services in civil defence emergencies.

Agencies responding to emer­ gencies include the police, ﬁre service, and DHBs.

The New Zealand Police have developed the police operations part of this plan.

The New Zealand Fire Service has co­ordinated and led the participation of ﬁre organisations in the development of this plan and is referred to in this plan in that capacity.
The Ministry of Health has co­ordinated and led the participa­ tion of DHBs in the development of this plan and is referred to in this plan in that capacity.

The New Zealand Defence Force is not deﬁned as an emer­ gency service under the Act.

It is a primary support agency in emergencies.


Requests for support from the New Zealand Defence Force be­ yond local levels of commitment should be made through the National Controller in accordance with the agreement between MCDEM and the New Zealand Defence Force.
Principles common to emergency services 21 (1) At national level each chief executive or national commander of each emergency service appoints a senior ofﬁcer to liaise with the National Controller or designated staff within NCMC 23 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (these liaison ofﬁcers must have authority to co­ordinate the activities of their own services).
(3) (2) At regional levels a senior member of each emergency ser­ vice is assigned to the co­ordinating executive group of each CDEM Group.

Emergency services should use CIMS structures and pro­ cesses.

The responsibility of each service for its primary functions (law and order, ﬁre suppression, and health services) is in no way transferred or modiﬁed by the declaration of a state of emergency (staff continue to work under their service’s com­ mand structures and established procedures).
(4) (5) When the nature or magnitude of an event is so great that it requires a signiﬁcant or co­ordinated response, the emergency service or other response organisation liaises with the CDEM Group or National Controller.

(7) (6) When a senior member of an emergency service decides that an event has occurred or may occur that will or might require a signiﬁcant or co­ordinated response, a declaration of a state of emergency for the affected area may be requested from a person authorised to declare one.
If liaison has been established for a signiﬁcant or co­ordinated response or a declaration has been requested, the senior local ofﬁcer of each emergency service is to notify the national man­ ager of that service.

Emergency services are to plan for providing, and provide, welfare to their own staff who are affected by the emergency, including those operating during it.
(8) Police Principles of police involvement 22 (1) A civil defence emergency can create complex problems for the maintenance of law and order and the performance of stan­ dard police roles.
24 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (2) (3) (4) (5) 23 (1) By virtue of their day­to­day role as co­ordinators of emer­ gency situations and their 24­hour availability, the police will frequently be required to accept the initial responsibility for co­ordination of an emergency.

Police emergency plans provide for the smooth transfer of this responsibility to the appropriate lead agency once the agency is ready.
The following principles apply to police involvement: (a) the use of ordinary police powers and special powers created by the declaration of a state of emergency is at the discretion of the police member in charge, subject to any direction given by the operation commander; and any measures taken by anyone other than a police ofﬁcer for the maintenance of law and order are to conform to any directions given by the police; and when a state of emergency is imminent or in force the Commissioner of Police through the police national manager operations may arrange for reinforcements to be deployed from districts not directly affected (the police national manager operations will co­ordinate inter­district movement of police personnel in consult­ ation with the National Controller); and police— (i) have powers of compulsion under the Act when a state of emergency is in force; and (b) (c) (d) (ii) may also authorise someone else to exercise any of these powers.
The powers of the police, including those in the Act, are sum­ marised in The Guide.
Role of police Police roles related to civil defence emergency management are— (a) maintaining law and order; and (b) taking all measures within their power and authority to protect life and property and to assist the movement of rescue, medical, ﬁre, and other essential services; and 25 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (c) (d) assisting the coroner as required by the Coroners Act 1988; and co­ordinating movement control over land, including communications and trafﬁc control; and (e) conducting inland search and rescue.
To fulﬁl these roles, police may do the following: (a) (2) represent, as required, the police at NCMC, and at CDEM Group EOCs, and (where resources permit) at other local civil defence organisations; and assist with the dissemination of warning messages; and control access to and within an affected area so as to assist rescue, medical, ﬁre, and other essential services; and protect property and provide security of evacuated areas, including the establishment of cordons; and conduct any initial evacuations to ensure protection of life; and prevent and suppress disorder; and trace missing persons and notify their next of kin; and support the coroner as required by the Coroners Act 1988, in close liaison with the Ministry of Justice and health authorities.
(b) (c) (d) (e) (f) (g) (h) Police operations 24 (1) District commanders in each New Zealand Police district maintain business continuity plans to ensure police functions can continue to be delivered during an emergency.

(3) (2) District commanders in each district maintain emergency plans that provide for police action to cope with any emer­ gency where an extensive co­ordinated response is necessary.
These plans— (a) form the basis for police action in a state of emergency; and refer to and integrate with CDEM Group plans and may also recognise local plans.
(b) (4) Police emergency plans also provide for— 26 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (a) (b) (c) (d) (e) the achievement of early control of the scene, the co­or­ dination of the activities of essential services, and the facilitation of the preservation of life and the protection of property; and the establishment of a New Zealand Police operations headquarters; and the callout of sufﬁcient personnel to meet police re­ quirements; and basic procedures for dealing with the event, including alerting and liaising with other emergency services; and liaison at the appropriate level with other elements of the response and co­ordination team.
(5) To provide for inter­agency co­ordination, police ensure that— (a) the police national manager operations provides na­ tional co­ordination through police channels on behalf of the Commissioner of Police and arranges for re­ source support when required; and the police district commander or nominee will be the adviser to the CDEM Group controller under CDEM Group arrangements; and police district commanders appoint advisers to local and group civil defence controllers as required; and (d) when appropriate, a police liaison ofﬁcer is appointed (b) (c) (e) to attend EOCs on a continuous basis; and police communication centres exchange situation re­ ports with EOCs.
(6) Additionally, police liaise with CDEM Groups through ar­ (7) rangements made in group plans.

For the purpose of tracing casualties, evacuees, and missing persons, the police will record details of the person inquiring and the person inquired about on an emergency reconciliation form and promptly forward a copy of the completed form to the nearest public inquiry centre.
In a large­scale civil defence emergency, the New Zealand Red Cross may establish a na­ tional inquiry centre to help with the processing of inquiries.

27 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (8) Under the Coroners Act 1988 police are obliged to notify the coroner of any violent or unnatural death that has occurred.
The coroner’s role is to determine the identity of the dead per­ son and the time, place, cause, and circumstances of death.

The coroner may also make recommendations or comments that may help to reduce the occurrence of other deaths in sim­ ilar circumstances.

In the course of this role, the coroner may authorise a post mortem.

The coroner is also required to au­ thorise the disposal of the body.
(9) As a general rule the police will accept overall responsibil­ ity for the recovery and identiﬁcation of human remains in a state of emergency.

Emergency mortuary facilities will be ar­ ranged as required.

Police will liaise closely with the agencies and individuals involved because of the legal, moral, cultural, and health implications that can arise in the disposal of human remains.
These agencies and individuals include the coroner, iwi authorities, health authorities, funeral directors, and the regional councils and territorial authorities that have power to undertake the emergency disposal of the dead under section 85(1)(g) of the Act.

(10) Police civil defence emergency management operations are summarised in The Guide.
Fire service Background The national commander of the New Zealand Fire Service, or the commander’s designated representative,— (a) (b) is the ﬁre service adviser to the National Controller; and advises on ﬁre service operations, priorities, and re­ sources required to continue operations.

If a civil defence emergency is declared in a rural ﬁre author­ ity’s area in response to a rural ﬁre, the relevant controller will initiate appropriate liaison with the principal rural ﬁre ofﬁcer.
The command of any brigade or brigades in a particular urban locality is vested in the chief ﬁre ofﬁcer of the ﬁre district (including any protected area).

Chief ﬁre ofﬁcers in charge 25 (1) (2) (3) 28 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued of New Zealand Fire Service brigades will request reinforce­ ments through their normal operational channels.
(4) On the declaration of a civil defence emergency, no additional powers or authority are conferred on the ﬁre services.

Rather, they continue to operate under the relevant sections of their respective Acts.
Section 28 of the Fire Service Act 1975 con­ fers authority on the chief ﬁre ofﬁcer of the ﬁre district, or, if absent, the deputy chief ﬁre ofﬁcer, or, in the absence of both, the person for the time being who is in charge of a ﬁre incident or other emergency, to direct those under that ofﬁcer’s control to do whatever is necessary, within reason, for the protection of life and property.
Under section 36 of the Forest and Rural Fires Act 1977, principal ﬁre ofﬁcers of the rural ﬁre author­ ities have power to control ﬁres occurring in forest and vege­ tation within their districts.

If a regional ﬁre emergency exists under section 39 of the Forest and Rural Fires Act 1977, the national rural ﬁre ofﬁcer may in the public interest take charge or appoint a principal rural ﬁre ofﬁcer or other appropriate ﬁre ofﬁcer to take charge for the duration of the emergency.
In a state of national emergency, the national commander of the New Zealand Fire Service, or the national commander’s designated representative, is responsible (subject to memoran­ dums of understanding between the ﬁre service parties) to the Director for the mobilisation, co­ordination, and control of ﬁre services.

The national commander, or the national comman­ der’s designated representative, must be located, if required, in NCMC.
He or she should maintain communications with the national ﬁre control centre, inform the Director of signiﬁcant events, advise on subsequent actions taken or to be taken, and liaise with the national rural ﬁre ofﬁcer.

The New Zealand Fire Service maintains business continuity plans to ensure ﬁre service functions can continue to be deliv­ ered during an emergency.

The ﬁre service also works closely with CDEM Groups both in the preparation of group plans and in support of local oper­ ations.
(6) (7) (5) 29 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (c) (b) to control, contain, and extinguish ﬁres; Fire service roles The principal roles of the ﬁre service in a civil defence emer­ gency are as follows: (a) ﬁreﬁghting: and containment of releases and spillages of hazardous sub­ stances; and urban search and rescue (USAR): the New Zealand Fire Service is formally recognised as having the resources for the operational co­ordination of urban search and rescue within New Zealand; the capability to carry out urban search and rescue includes the national support team, USAR task forces (consisting of technicians, medical staff, engineers, and search dogs), and those registered response teams with light USAR capabil­ ities; and limitation of damage: salvage of essential material from endangered locations; and redistribution of water for speciﬁc needs: preservation of health and hygiene in stricken areas.
To support these roles, the ﬁre service can— (a) (d) (e) temporarily re­establish piped water through use of its pumps and hoses; and provide Internet­based mapping tools and operational data; and supply equipment to NCMC so that the computer­aided dispatch systems of the ﬁre service can be used; and act to prevent ﬁres and protect vital services and sup­ plies; and advise emergency management ofﬁces on matters within ﬁre service expertise.
(b) (c) (d) (e) Fire service public information The ﬁre service will co­ordinate the release of information about its operations with other agencies.

Fire service liai­ son ofﬁcers will work in conjunction with appointees of local, 26 (1) (2) 27 (1) 30 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (2) group, and national controllers to ensure that messages re­ leased to the public are timely, complete, and accurate.
Fire service personnel have instructions to co­operate with media inquiries, but also to restrict their comments to the scope of their own roles and responsibilities.

To this end ﬁre ser­ vice liaison ofﬁcers will closely monitor media coverage of ﬁre service ﬁeld operations to verify the accuracy and appro­ priateness of reports.
Health services General 28 (1) A civil defence emergency may combine a sharp rise and vari­ ations in demand for health services with the disruption of fa­ cilities and infrastructure.

There may be pressure on hospitals and other health services and facilities.

Communities may ex­ perience public health problems while those who have suffered loss and disruption may require psychological support.

Hos­ pitals, medical equipment, ambulances, and the like may be damaged.
Even where the hazard does not directly affect health or health infrastructure, disruption to other services like roads, power, or water can have serious consequences.

If staff cannot get to work or utilities fail, facilities and services may have to be reduced or relocated, or stopped altogether.

This can endanger community health and safety.


The health sector has speciﬁc functions in civil defence emer­ gencies, among them— (a) (2) (3) co­ordinating a national, regional, and local health ser­ vice response to emergencies; and disseminating health warning messages; and supporting police in their obligations relating to the dead; and supporting welfare activity; and supporting CDEM Groups.
(b) (c) (d) (e) (4) Without limiting their overall responsibilities, health providers must, as appropriate,— 31 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (a) (b) identify risks and hazards; and ensure that all obligations for response capability and actual response are met; and (c) monitor staff awareness, staff training, and readiness of (d) (e) (f) (g) (h) (i) resources; and ensure that there is an efﬁcient system for rapidly noti­ fying or calling up staff in an emergency; and ensure that in an emergency there is access to essential supplies; and participate in co­ordinated planning, training, exercis­ ing, and response arrangements with complementary or neighbouring providers and other lead agencies; and participate in an alternative communications network that links principal healthcare facilities with civil de­ fence organisations; and liaise with the appropriate controllers and co­ordinators in an emergency; and— report to their funders on request about readiness for or response to an emergency; and maintain current business continuity plans.
(j) The Director­General of Health, on behalf of the Minister of Health, has overall responsibility for health matters in all phases of emergency management.
The health sector (including ambulance services) will plan to meet the purpose of the Act by— (a) reducing the consequences of emergencies on facilities, services, and supplies; and continuing the care of existing patients and providing normal services to the fullest possible extent; and (c) mobilising or reassigning resources to reﬂect ﬂuctua­ (b) (d) (e) (f) tions and variations in demand; and planning for health service delivery from alternative fa­ cilities and the use of alternative sources of supply; and giving training in emergency roles and responsibilities to the providers of health services; and providing for the care and welfare of providers of health services during and after an emergency; and (5) 32 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (g) (h) co­operating with other agencies during an emergency, through the use of alternative methods of communica­ tion if necessary; and supporting national and CDEM Group responses, including representing, as required, health matters at NCMC, and at CDEM Group EOCs and (where resources permit) at other local civil defence organisa­ tions.
(6) The arrangements may include plans, contracts, or agreements that outline the conditions governing the use of staff or equip­ ment to meet an urgent need.

29 Ministry of Health (1) (2) The responsibilities of the Ministry of Health include policy development and national planning.

These include planning for a health­related emergency through the National Health Emergency Plan.
The Ministry of Health— (a) is responsible for initiating and co­ordinating any na­ tional emergency response from the health sector; and (b) monitors various functions relating to health and dis­ ability including emergency planning and response (monitoring will be done by various means, including the district annual planning process and certiﬁcation audits carried out by designated audit agencies); and develops memoranda of understanding and other agree­ ments or guidelines with various government agencies (these include interventions in a national health­related emergency); and is charged with ensuring that New Zealand meets its international obligations and complies with inter­ national health regulations.
(d) (c) (3) The Director­General of Health will co­ordinate the prepar­ ation or provision of emergency health services that require integration at the national level.
Without limiting his or her overall responsibilities, the Director­General will— 33 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (a) (b) (c) (d) (e) through funding and monitoring arrangements, ensure that all funding parties, including DHBs, are aware of and comply with their responsibilities in all phases of emergency management; and negotiate limits to the ﬁnancial risks faced by funders and health providers; and prepare or update national guidelines on specialised health matters as he or she deems appropriate; and identify national and international health resources and establish a means of rapid contact with and mobilisation of those resources when required; and prepare a business continuity plan for the Ministry of Health.
(4) 30 (1) (2) For public health services, the Director­General will ensure that— (a) the scope of, nature of, and responses to public health risks in emergencies are analysed at the national level; and advice is given to help the analysis of risks; and speciﬁcations and guidelines for emergencies are pre­ pared as required and complied with.

(b) (c) District Health Boards (DHBs) Every DHB is required to develop and maintain a plan for signiﬁcant incidents and emergencies.
The DHB plans identify how services will be delivered in a civil defence or related emergency, and acknowledge the role of DHBs as both funders and providers of health services.
(3) DHBs must— ensure that all their plans provide adequately for— (i) public, primary, secondary, tertiary, mental, and disability health services; and an integrated regional and national response; and co­ordination with plans of other agencies (for example, ambulance, civil defence, ﬁre services, and police); and use of the CIMS; and (ii) (iii) (iv) (a) 34 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (b) (c) (d) (e) (f) (g) (h) contribute to the development, implementation, and re­ vision of regional plans for health emergencies; and contribute to the development, implementation, and re­ vision of Ministry of Health national plans; and respond to a regional or national health emergency, or to the threat of one; and when necessary, liaise with the CDEM Group or local EOC in a signiﬁcant emergency; and ensure that new service agreements contain contractual commitments from providers for an appropriate plan in relation to the services they provide; and require health providers to have plans and resources in place to ensure they can respond to emergencies in an integrated and effective manner; and ensure that hospitals and health services are ready to function to the fullest possible extent during and after an emergency by ensuring— (i) the provision of continuity of care for existing patients, the management of increased demand for services, and assistance with the recovery of services; and the preparation of an incident and emergency management plan that is integrated locally and regionally, and is aligned with the plans of the other emergency services and the regional group plan; and their own planning and responses are integrated with public health planning and responses.
(ii) (iii) 31 Public health Public health units of DHBs and of the Ministry of Health have a responsibility to— (a) develop plans speciﬁc to public health emergencies, such as a pandemic; and integrate public health planning and responses with DHB planning and responses; and (b) 35 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued (c) (d) (e) advise local agencies and lifeline utilities about public health aspects of their business continuity planning; and respond to emergencies involving risk to public health; and liaise with the CDEM Group or local EOC during a signiﬁcant emergency.
32 Ambulance Ambulance providers are required to— (a) continue their services and manage any increased de­ mand; and prepare an incident and emergency plan that is inte­ grated with that of the DHB regional group; and be represented on DHB regional groups and CDEM Groups as required; and contribute to emergency planning led by the Director­ General of Health.
(b) (c) (d) Lifeline utilities 33 34 (1) (2) (3) Duties of lifeline utilities Lifeline utilities represent signiﬁcant aspects of the national infrastructure and have obligations under section 60 of the Act.

Lifeline utilities co­ordination Co­ordination of lifeline utilities is necessary in both the re­ sponse and recovery phases of a civil defence emergency.

CDEM Groups are primarily responsible for the co­ordination of local lifeline utilities across affected regions.
Lifeline utilities are expected to co­ordinate at the national level as necessary to provide appropriate capacity during a state of national emergency or a civil defence emergency of national signiﬁcance using established lifeline utility sector mechanisms.

(4) MCDEM has responsibility for co­ordinating across lifeline utility sectors at the national level.
36 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued 35 (1) (2) Lifeline utility co­ordinators In view of the likely needs at CDEM Group EOCs and at NCMC, a pool of trained lifeline utility co­ordinators will be established by MCDEM.
This pool of co­ordinators would be capable of— (a) leading the lifeline utility co­ordination operation in their own emergency operations or recovery centres; and assisting lifeline utility co­ordination at any EOC; and assisting lifeline utility co­ordination at NCMC; and acting as a link between lifeline utility co­ordination at any emergency operation or recovery centres and NCMC.
(b) (c) (d) (3) This pool of co­ordinators may comprise the designated life­ line utility co­ordinators from the main centres and others who have undertaken the required training.
Clusters 36 (1) Clusters at national level Clusters— (a) (b) (c) (d) (e) are expected to operate in a co­ordinated multi­agency environment; and are ﬂexible, with the national agencies involved joining, exiting from, or merging with clusters as circumstances dictate, while allowing the overlap of functions or mem­ bership where appropriate; and determine their own membership; and organise themselves, including establishing their inter­ nal management structures, co­ordinators, and commu­ nication plans; and are expected to develop and exercise liaison with NCMC and MCDEM via the National Controller or the duty ofﬁcer of MCDEM.
(2) An agency’s membership in a cluster does not limit any of the agency’s statutory obligations under the Act or any other enactment.

37 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 5—continued 37 (1) (2) 38 (1) (2) Clusters at local level Clusters reﬂecting the national level clusters may be estab­ lished at CDEM Group or local levels.
Local clusters may— (a) involve regional representatives of national agencies; and be regional representations of national clusters; and deal with relevant civil defence emergency manage­ ment matters of local importance; and continue to act throughout the 4 Rs.

(b) (c) (d) are already formed and are active (see The Guide); or are proposed.
Formed and proposed clusters Some clusters— (a) (b) Examples of formed or proposed clusters include— (a) (b) (c) (d) (e) (f) (g) (h) (i) (j) (k) emergency services; and lifeline utilities; and welfare providers; and health service providers; and transport providers; and public information and education providers; and agricultural and rural services; and research and science providers; and— socio­economic development agencies; and business communities; and international and cross­border service providers.
(3) Many clusters, including those proposed, already have effect­ ive arrangements that will contribute to civil defence emer­ gency management.

Cluster co­ordinators 39 (1) All clusters should have member agencies acting as a co­or­ dinator and a secretariat.

The co­ordinator brings together the civil defence emergency planning for the cluster.
(2) 38 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 5—continued (3) The secretariat gives administrative support, distributes infor­ mation, and works as a clearing house.

6 Welfare Background 40 (1) Welfare begins with readiness and extends through response (2) (3) to recovery.
Emergencies affect the physical, emotional, and psychological well­being of large numbers of people who may suffer trauma as a result of bereavement, physical injury, or separation from families.

People may also experience losses of clothing, homes, other property, employment, and income along with social and com­ munity isolation.

(4) Welfare includes supporting people in their homes and work­ (5) (6) 41 places.

The emergency may necessitate the care of those who have been evacuated.
Provision of shelter, accommodation, food, clothing, ﬁnancial assistance, personal support, and advice may be required by people in or threatened by an emergency.
Principles The following are the principles for providing welfare: (a) all welfare agencies work together in readiness, re­ sponse, and recovery to ensure services provided are integrated to achieve the best outcomes for communi­ ties; and (b) welfare being co­ordinated or provided nationally by NWRCG (operating as a cluster) must take into account local needs and processes; and welfare provision succeeds when it supports local ar­ rangements and networks, restoring self­reliance as the foundation for individual and community recovery; and (c) 39 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 6—continued (d) welfare agencies have pre­event continuity planning to (e) ensure they can deliver services; and during and following an emergency, agencies support their own staff and their co­ordinator liaises with the appropriate­level controller for their operation (local, group, or national).
42 (1) Process In readiness for a civil defence emergency, welfare services aim to— (a) clarify roles and responsibilities at the national and local levels; and identify a lead agency co­ordinator, a secretariat, any support agencies, and their responsibilities for under­ taking functions at the national level.

(b) (2) In the response and recovery phase of an emergency, relevant agencies may combine in a centralised and publicly accessible recovery centre (one­stop shop).
(3) Agencies may combine to provide mobile welfare services to (4) those who cannot access recovery centres.

Representatives from other agencies may be involved in pro­ viding welfare services, depending on the emergency and the community’s needs.

National welfare co­ordination 43 (1) National­level assistance with welfare will be required when a CDEM Group cannot meet demand for welfare assistance and requires help from either the responsible national agency, NWRCG, or National Controller.
The level of assistance required will depend on the resources of the affected areas and the consequences that have to be man­ aged.
(2) (3) NWRCG represents— (a) (b) the welfare sector; and the following agencies that contribute to welfare recov­ ery: (i) the Ministry of Social Development; and 40 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 6—continued (ii) Housing New Zealand Corporation; and (iii) CYF; and (iv) MCDEM; and CDEM Groups; and (v) the Accident Compensation Corporation; and (vi) the Inland Revenue; and (vii) (viii) the Ministry of Education; and (ix) (x) (xi) Te Puni Kokiri; and (xii) (xiii) the Salvation Army; and (xiv) the New Zealand Red Cross; and (xv) Victim Support; and (xvi) St John; and (xvii) the Royal New Zealand Society for the Preven­ the Ministry of Agriculture and Forestry; and the Ministry of Health; and the Department of Internal Affairs; and tion of Cruelty to Animals.
Several of these support agencies perform lead roles for certain functions.

National Welfare Recovery Co­ordination Group (NWRCG) functional arrangements The Ministry of Social Development is— (a) mandated, as chair and lead agency for NWRCG, to (b) undertake national welfare co­ordination; and responsible for planning for the delivery of national welfare when assistance or support is required to be co­ordinated at a national level.
In undertaking national welfare co­ordination, the Ministry of Social Development is to— (a) provide a national­level welfare response for individu­ als and communities affected by an emergency (that is, co­ordinating the response of all welfare agencies at a national level); and co­ordinate recovery centres for national welfare and related agencies in affected areas; and (b) 41 (4) 44 (1) (2) Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 6—continued (c) (d) (e) provide stafﬁng at, and the lead agency role in, recovery centres where required; and co­ordinate government information helplines for those affected by an emergency; and provide social policy advice to the Government as re­ quested.
The Ministry of Social Development— (a) (b) must ensure that a NWRCG liaison ofﬁcer is appointed will convene the NWRCG; and to NCMC; and (c) must co­ordinate the activities of the NWRCG with the National Controller.
The role of the NWRCG is to— (a) liaise with all agencies providing welfare and ensure their logistical and other needs are met; and (3) (4) (c) (d) (e) (b) monitor welfare provision against arising needs, iden­ tify gaps, and monitor support agencies to ensure needs are met; and provide information (in summary form) on welfare issues and activities during an emergency; and report on welfare provision; and develop, or support the development of, social and com­ munity components of recovery programmes; and co­ordinate— (i) (ii) (iii) (iv) (v) ﬁnancial assistance; and accommodation; and inquiry and identity; and domestic animal welfare; and psychosocial support.
(f) 45 Financial assistance (Ministry of Social Development) (1) Work and Income (a service of the Ministry of Social Devel­ opment) is the agency primarily responsible for delivering ﬁ­ nancial support and information to affected individuals.
(2) A range of different support services is provided by the fol­ lowing agencies: CYF; and (a) 42 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 6—continued the Inland Revenue Department; and the Accident Compensation Corporation; and the Department of Internal Affairs; and the Insurance Council of New Zealand; and the Earthquake Commission; and Te Puni Kokiri; and the Ministry of Agriculture and Forestry; and— Housing New Zealand Corporation; and St John.
(b) (c) (d) (e) (f) (g) (h) (i) (j) Financial assistance consists of— (a) (b) (3) (c) (d) (e) (f) (g) national co­ordination of beneﬁts; and payments to meet the immediate and continuing needs of people in an affected area through beneﬁts, pensions, and supplementary assistance; and non­means­tested payments to meet the immediate needs of evacuees from an area affected by a civil defence emergency (temporary accommodation, food, and clothing); and reimbursement of costs for accommodation and food incurred by people hosting evacuees in private homes, marae, or community centres; and other ﬁnancial assistance approved by Cabinet or min­ isters to cover speciﬁc situations; and co­ordination of information relating to ﬁnancial ques­ tions, tax, insurance, Accident Compensation Corpor­ ation payments, and banking; and stafﬁng welfare or reception centres or other services, for— (i) (ii) taking applications; and giving advice and assistance (for example, giving payments); and (h) payments to persons for response and recovery work.
46 Accommodation (Housing New Zealand Corporation) (1) As lead agency for accommodation, Housing New Zealand Corporation maintains plans for the national co­ordination of accommodation.
43 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 (2) (3) (4) (5) (6) 47 (1) (2) 6—continued CYF; and the Ministry of Social Development; and the Ministry of Education; and the Department of Building and Housing; and the Insurance Council of New Zealand; and Te Puni Kokiri.
Support agencies for this function are— (a) (b) (c) (d) (e) (f) Immediate emergency accommodation is the prime responsi­ bility of CDEM Groups with Housing New Zealand Corpor­ ation support.

Subsequent temporary accommodation is the prime respon­ sibility of Housing New Zealand Corporation with CDEM Group support.

The aim is to identify and provide temporary and longer­term accommodation for people who have been displaced from their normal dwellings.
Liaison between Housing New Zealand Corporation, other welfare providers, and health services, to ensure the health of those in temporary accommodation, is part of normal arrangements.

Inquiry and identity (MCDEM) For large­scale events of national signiﬁcance, MCDEM is re­ sponsible for inquiry and identiﬁcation of people affected by the emergency when this function has to be co­ordinated at a national level.
Support agencies are— the New Zealand Red Cross; and (a) the Ministry of Foreign Affairs and Trade; and (b) (c) the Ministry of Social Development; and (d) Housing New Zealand Corporation; and the Department of Internal Affairs; and (e) the Inland Revenue Department; and (f) CDEM Groups; and (g) the New Zealand Police.
(h) (3) MCDEM will— 44 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 6—continued (a) (b) (c) (d) ensure there is capability for a national inquiry centre; and ensure that CDEM Groups will provide the centre with access to local registry information; and facilitate information sharing about affected people among those welfare agencies helping with response to and recovery from an event; and co­ordinate information in relation to identity (for ex­ ample, lost documents).
(4) MCDEM maintains an agreement with the New Zealand Red Cross that provides that the New Zealand Red Cross will op­ erate a national inquiry centre.
Domestic animal welfare 48 (1) While the Ministry of Agriculture and Forestry maintains the government’s reporting capability on adverse events and nat­ ural disasters affecting agriculture, forestry, and horticulture, and for administering any approved government programmes, it is recognised that territorial authorities provide this function locally, and that this may also extend to domesticated animals in urban environments.
Local authorities may be assisted by the Royal New Zealand Society for the Prevention of Cruelty to Animals and from the Ministry of Agriculture and Forestry in both urban and rural environments.

The Ministry of Agriculture and Forestry encourages farmers and vulnerable industries to develop their own contingency re­ sponse plans for both natural disasters and biosecurity hazards.
(2) (3) 49 (1) (2) (3) Psychosocial support The Ministry of Social Development is the lead agency re­ sponsible for planning for the delivery of psychosocial support when assistance or support is required to be co­ordinated at a national level.

Psychosocial support following an incident involves social support and psychological support.
Support agencies are— 45 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 6—continued (a) (b) (c) (d) (e) (f) DHBs; and CYF; and Victim Support; and iwi and Maori providers; and voluntary service organisations; and church groups.
Support agencies with role in welfare provision The following agencies work in a co­ordinated way within the welfare sector to deliver welfare services: (a) CYF, whose welfare role includes provision of— (i) care services to those children and young persons who have been identiﬁed (after registration) as separated from their parents or normal guardians by the emergency; and trained staff at welfare centres or elsewhere to identify and provide the services required; and (ii) (b) (c) the Inland Revenue Department, which— (i) has responsibility for the provision of advice and the payment of family support and child support payments to the public (the Inland Revenue De­ partment’s responsibilities include stafﬁng wel­ fare or reception centres where appropriate to help in matters relating to taxation, and in the col­ lection and distribution of family and child sup­ port payments); and (ii) will, during large­scale emergencies, maintain services for the forecasting and collection of Crown revenue and provide an assessment of the effect of the event on Crown revenue collection; and the Accident Compensation Corporation (ACC), which may defer its levy collection following a civil defence emergency, and will, to the extent possible, ensure that— 50 46 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 6—continued (i) (ii) (iii) people can continue to lodge claims (either di­ rectly with ACC or through a centralised emer­ gency registration centre); and claimants receive quality health and rehabilita­ tion services in a timely manner; and claimants who are unable to work because of their injury receive, or continue to receive, weekly compensation payments (in lieu of their salary); and (d) (e) (f) (v) (iv) ACC’s more vulnerable claimants (for example, those with tetraplaegia) are as well­supported and well­cared for as possible; and health service providers are paid for the services that they provide to injured individuals; and the Ministry of Education, which supplies
 information to NWRCG about affected education facilities, and works with— (i) CYF to look after children in school during an emergency who are separated from their care­ givers; and (ii) Housing New Zealand Corporation to identify any available houses that could be used for short­ term accommodation); and Te Puni Kokiri, which will— (i) (ii) work with local iwi to assess the need for mobile provide staff for recovery centres; and (iii) welfare services; and link to iwi providers who can give welfare sup­ port; and the Salvation Army, which— (i) offers a variety of welfare support services across New Zealand, including (A) (B) (C) welfare needs assessments (clothing and stand­alone catering units: pastoral welfare support units: furnishings): (D) meet and greet reception: 47 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 6—continued (E) critical incident stress support (trained) teams; and (ii) may provide other welfare services as skills and personnel are identiﬁed; and (iii) may enter into a memorandum of understand­ ing with local emergency groups using a service agreement to document the services that can be provided; and (g) the New Zealand Red Cross, which will provide ser­ vices at a national level, including— (i) assistance with, and information on, international offers of assistance; and an international tracing facility through inter­ national Red Cross and Red Crescent partners; and (ii) (iii) management of a national relief appeal to support (iv) (v) (vi) the emergency­affected areas; and registration forms to support the inquiry system; and a national inquiry centre to handle calls related to people in an affected area in support of MCDEM; and statistics and reports derived from information received by the national inquiry system; and (h) Victim Support, which provides ongoing emotional and practical support, information, and personal advocacy to ensure that the needs, rights, and entitlements of
 those affected are met; and— St John, which offers welfare support services across New Zealand including— (i) ﬁrst aid; and (ii) meet, greet, and advocacy for patients at hos­ (i) (iii) (iv) pitals and welfare centres; and some psychosocial support; and caring activities provided by a large number of people across the country; and 48 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 6—continued (j) (k) voluntary agencies that have community welfare as a principal objective, as they often have resources to con­ tribute to the efforts of civil defence organisations; and the Royal New Zealand Society for the Prevention of Cruelty to Animals, which supports the Ministry of Agriculture and Forestry in the care of domestic animals in an emergency, and will support territorial authorities if possible.
7 Readiness 51 (1) Principles Risk management should form part of normal business oper­ ations.

(2) Agencies should incorporate emergency response and recov­ ery planning into their business continuity arrangements.

(3) National agency plans should— (a) (b) describe national­level responsibilities; and support locally managed events.
52 53 (1) Preparation Agencies should plan, train, exercise, and equip themselves in co­ordination with interdependent agencies so as to be able to— (a) function to the fullest possible extent, even though this may be at a reduced level, during and after an emer­ gency; and contribute to response and recovery.
(b) Nationwide levels of civil defence emergency management operation The following are the ﬁve indicative levels of civil defence emergency management operation and the co­ordination or support (or both) required for each: (a) level 1: single­agency incidents with on­site co­ordin­ ation: 49 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 7—continued (b) (c) (d) (e) level 2: multi­agency incidents with on­site, local co­ordination; these are managed by the incident con­ troller of the relevant lead agency: level 3: a multi­agency emergency led by an agency other than a CDEM Group, or a state of local emergency at below CDEM Group­level (district or ward); at this level, CDEM Group support and co­ordination will be required and may be monitored by the National Con­ troller: level 4: a multi­agency emergency with more signiﬁ­ cant consequences than in level 3; co­ordination may be required between agencies or areas or both; CDEM Group­level support and co­ordination is required; the actual or potential need for a declaration of a state of local emergency by a CDEM Group requires consider­ ation; national monitoring will occur and national sup­ port is available: level 5: a state of national emergency exists or the civil defence emergency is of national signiﬁcance; at this level, co­ordination by the National Controller will be required.
(2) (3) Local arrangements continue to operate throughout all levels.

The Director or National Controller can use NCMC facilities at any time to monitor or support a civil defence emergency irrespective of the CDEM Group level of operation.

(4) National agency cluster groups will be activated, to a level re­ quired to support the civil defence emergency, at the direction of the National Controller.
Areas of readiness Core readiness arrangements are— (a) (b) (c) (d) the co­ordinated incident management system; and public education; and professional development; and exercising.

54 50 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 7—continued 55 (1) (2) (3) (4) Co­ordinated incident management system (CIMS) CIMS is used by the emergency services and other agencies as a basis for operational response.
The most important aspect of CIMS is co­ordination that brings together agencies to ensure consistent and effective response and recovery efforts.

CIMS is about teamwork in emergency management through sharing common terminology, using a modular organisational structure, integrating communications, using common inci­ dent action plans, ensuring manageable spans of control, and sharing resources.
Co­ordination is based on four core elements— (a) (b) (c) (d) control; and planning and intelligence; and operations; and logistics.

(5) Multi­agency incident control (horizontally across agencies) is exercised by the senior ﬁrst responder but is transferred on the basis of which agency has primacy for the incident type (for example, police for law and order situations).
56 57 (1) Public education The National Public Education Strategy 2003­­2008 (the de­ tails of which are set out in The Guide)— (a) seeks increased individual and community awareness and acknowledgement of all hazards, and improved pre­ paredness to cope in a civil defence emergency; and aims to increase community awareness, understanding, and participation in civil defence emergency manage­ ment.
(b) Professional development The capability and capacity of the civil defence emergency management sector to perform appropriately in a civil de­ fence emergency relies on an integrated, broad network of under­standings, skills, and relationships.
In the civil defence emergency management context, professional development is 51 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 7—continued (2) the process of developing people to perform appropriately to­ gether under potentially high levels of stress.

It encompasses recruitment, selection, learning, support, and performance review functions appropriate for the civil defence emergency management setting.
Co­ordinated civil defence emergency management profes­ sional development opportunities should be an integral part of key civil defence emergency management roles, including (but not limited to)— (a) (b) controllers (national, group, and local); and recovery co­ordinators, recovery facilitators, and recov­ ery managers; and CIMS response co­ordinators and incident controllers; and emergency management staff within councils; and EOC and NCMC co­ordination, operations, intelli­ gence, planning, logistics, welfare, and liaison staff; and governance, executive, and senior management staff of local authorities; and other staff or contractors associated with local author­ ities who fulﬁl roles required in civil defence emergen­ cies; and regional ofﬁce staff of central government agencies, as part of their civil defence emergency management re­ sponsibilities; and— management, staff, and volunteers from emergency ser­ vices; and management, staff, and volunteers from community ser­ vice and welfare agencies who have a role to play in civil defence emergencies.
(c) (d) (e) (f) (g) (h) (i) (j) Exercise programmes 58 (1) A national civil defence emergency management exercise pro­ gramme is a means by which the operational capability of agencies, and CDEM Groups and their partners, such as life­ line utilities, may be tested in relation to civil defence emer­ 52 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 7—continued (2) gency management (details of the programme are set out in The Guide).
The national exercise programme— (a) is supplemented by regular agency and local exercises; and seeks to exercise the operational arrangements within this plan, CDEM Group plans, and departmental emer­ gency management plans so as to— (i) improve response at group and national levels; and assess the readiness of participants.

(ii) (b) 8 Response Principles 59 (1) Agencies should respond to an emergency by activating their own plans and co­ordinating with the lead agency.
(2) Within the constraints that the emergency creates, each agency, operating within its own jurisdiction, must co­ordi­ nate with interdependent agencies to— (a) assess the impact of an event on its own staff, assets, and services; and activate its own continuity and emergency arrange­ ments; and (b) (c) maintain or restore the services it provides; and (d) communicate with lead agencies, other responders, and the public; and align response activities with other agencies to avoid gaps and duplications.
(e) (3) In addition, the emergency services are expected to— (a) (b) (c) assess the effect of an event on the community; and co­ordinate the local efforts of their agency; and communicate assessments and actions with the appro­ priate lead agency.
(4) Emergency response objectives include— (a) preservation of life; and 53 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued prevention of escalation of the emergency; and (b) (c) maintenance of law and order; and (d) care of sick, injured, and dependent people (ﬁrst aid, medical, and evacuation facilities, and welfare); and provision of essential services (lifeline utilities, food, shelter, public information, and media); and preservation of governance (continuity of the machin­ ery of government); and asset protection, including buildings and historic her­ itage assets (including structures, areas, landscapes, archeological sites, and wahi tapu); and protection of natural and physical resources (to the ex­ tent reasonably possible in the circumstances); and preservation of economic activity.
(e) (f) (g) (h) (i) General warnings 60 (1) Objective The objective is to issue warnings so that local authorities, agencies, and people can take action to reduce loss of life, injury, and damage.

(2) Warnings about predictable events (for example, severe tsunami) are to be given as weather, volcanic eruption, quickly as practicable.
For unpredictable events like earthquakes, where warning is not possible, the objective is to inform emergency response by providing assessments of the likely impact on any affected areas.

The responsibility for issuing warnings rests with the agency that through its normal function is involved with the identiﬁ­ cation and analysis of the particular hazard or threat (see Ap­ pendix 1).
Relevant government agencies, CDEM Groups, local author­ ities, and lifeline utilities must maintain arrangements to re­ spond to warnings.

(3) (4) (5) 54 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued Scope 61 (1) Warning systems are to provide warnings about signiﬁcant hazards with the potential to affect human populations, geo­ graphical areas, or social or economic activities.
This plan does not cover— (a) (b) localised, long­term, or slowly­evolving threats; or the local actions and procedures required to disseminate or respond to warnings.

(2) (3) 62 (1) The effectiveness of a warning depends on its delivery and re­ ceipt, recipients’ understanding of what they should do under the particular threats, and readiness and response at all levels.
National warning system The national warning system establishes a process for the receipt of general warnings and communication of civil­de­ fence­emergency­management related information for warn­ ing purposes at all hours by MCDEM.

(2) MCDEM maintains the national warning system to issue civil defence warnings received from responsible agencies.

The standard operating procedure under this system speciﬁes the principles and methods for disseminating national warn­ ings.
(3) (4) National warnings must be provided by MCDEM to CDEM Groups, local authorities, police, certain government depart­ ments, lifeline utilities, and certain broadcasters.

(5) Different hazards require different types of warnings and pro­ cedures.

The civil defence emergency management hazards for which national warnings may be issued are listed in Ap­ pendix 1.

CDEM Groups are responsible for— (a) disseminating national warnings to local communities; and (6) (7) (b) maintaining local warning systems.
If arrangements are made with the duty ofﬁcer of MCDEM, the national warning system is available to issue warnings with 55 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued respect to hazards for which warning arrangements are decided and maintained by other responsible agencies.
National Crisis Management Centre 63 Functions of National Crisis Management Centre (NCMC) (1) NCMC facilitates a whole­of­government response in support of government crisis management arrangements by provid­ ing a secure, centralised facility for information gathering and information management, strategic­level oversight, decision making, and co­ordination of national responses.

(2) NCMC may include or support the operational management facilities of a lead agency’s response arrangements.
64 (1) Principles of NCMC activation Following notiﬁcation or warning of a civil defence emer­ gency, national agencies with lead roles are to act in support of government crisis management arrangements at a speed and to a level commensurate with the threat.

Emergencies requir­ ing a whole­of­government response may require activation of NCMC by ODESC on the recommendation of the responsible lead agency for this purpose.
(2) Agencies with supporting roles are to examine the nature of the emergency or threat and activate their emergency arrange­ ments in co­ordination with the lead agency.

These agencies may be required to provide ad hoc or full­time representation and support at NCMC.

This representation can form part of formal procedures for particular types of events or be provided at the request of the lead agency.
(3) Activation of NCMC in support of government crisis manage­ ment arrangements or for the purpose of operational manage­ ment may occur with or without the existence or need for any form of emergency declaration.

(4) ODESC is responsible for the general management, devel­ opment, and maintenance of NCMC.

ODESC has delegated 56 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued day­to­day responsibilities for this to MCDEM.
NCMC is kept in a constant state of readiness for activation by a lead agency.

65 MCDEM uses NCMC to manage civil defence emergencies (1) MCDEM uses NCMC to— (a) manage existing or potential— national emergencies; or civil defence emergencies of national signiﬁ­ cance; and (i) (ii) (b) support CDEM Groups in their management of local civil defence emergencies.
(2) NCMC is used to gather, collate, assess and produce informa­ tion, direct response operations and support, issue public infor­ mation and conduct media liaison, inform and advise the Gov­ ernment, and, where required, co­ordinate government and non­government resources.

The nature of the civil defence emergency determines the level of activation.

NCMC may operate in any of the modes indi­ cated in Appendix 2.
(3) (4) Activating NCMC for a civil defence emergency necessarily (5) CDEM Group EOCs; and support agencies; and national lifeline utilities.
involves links with— (a) (b) (c) The primary support agencies in NCMC for civil defence emergencies include— (a) (b) (c) (d) (e) the Ministry of Health; and the Ministry of Social Development; and the Ministry of Agriculture and Forestry; and the Ministry of Foreign Affairs and Trade; and the New Zealand Defence Force (Joint Forces Head­ quarters); and the New Zealand Fire Service (urban and rural); and the New Zealand Police.
(f) (g) 57 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued Emergency information management Objective The objective is to promote the effective management and ex­ change of information to aid decision making, support, and communication.

Information needs to be timely, relevant, consistent, and reli­ able.
It is understood that information may not, owing to the circumstances, be absolutely accurate, but it will be based on the best data available at the time.

Context Emergency information management supports decision mak­ ing before, during, and after a civil defence emergency.

The delivery of an appropriate and timely response requires effect­ ive and efﬁcient information management.
Information may be presented as— (a) (b) (c) (d) hazard and risk status information: readiness information including resources and assets: emergency impact assessments: incoming and outgoing situation reports and response messages: recovery status information: management information such as contact lists or stan­ dard operating procedures: reports, brieﬁngs, public notices, and media releases.
(e) (f) (g) Principles The following principles for the management of information in civil defence emergencies are recommended: use business­as­usual systems; and (a) use business­as­usual baseline information supplied (b) from and maintained by the responsible agencies; and (c) maintain local copies of the baseline information in case access to distributed data is disrupted; and 66 (1) (2) 67 (1) (2) 68 (1) 58 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued (d) (e) (f) (g) (h) (b) (c) augment the business­as­usual information with infor­ mation for the event, exchanged between the respond­ ing agencies; and use normal communication methods and additional emergency communications methods in the order the time, of their availability and effectiveness at namely— (i) (ii) (iii) the Internet; and fax; and voice communication (for example, telephone, satellite phone, or radio); and courier; and (iv) conform, where practical, to equivalent busi­ ness­as­usual practice and national standard speci­ ﬁcations; and use interoperable data standards; and use business continuity principles (for example, emer­ gency recovery, off­site backup, multiple (redundant) telecommunication paths); and— ensure information is appropriately secured.
(2) (i) To ensure that consistent information is available to support decision making at the national level, the following must occur: (a) the relevant territorial authority gives situation reports to the CDEM Group; and the affected CDEM Groups, along with emergency ser­ vices communications centres, report the situation to the National Controller (or, in the absence of the National Controller, to the Director); and the National Controller (or, in the absence of the Na­ tional Controller, the Director) provides appropriate consolidated reports, when appropriate, to— (i) (ii) ODESC; and (iii) CDEM Groups; and (iv) emergency services communications centres; and the Minister; and 59 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued (v) other responding agencies.
(3) Relevant government security standards and policies should be followed.

(4) When forwarding information to the National Controller, CDEM Groups complete the national­level information tem­ plate (further detail is in The Guide).
Public information management Purpose Public information management assists effective leadership and decision making and supports a sense of conﬁdence dur­ ing an emergency by— (a) ensuring that those who need information in a civil de­ fence emergency get it, and that those who provide pub­ lic information do so in a timely and accurate manner; and building public conﬁdence in a responsible, competent operation that has made all reasonable efforts to inform and protect the community; and promoting the effective management of public infor­ mation between government agencies, CDEM Groups, emergency services, lifeline utilities, the media, and the public.
(b) (c) The target audiences of public information are the agencies that disseminate public warnings and information, or con­ tribute to response and recovery.

The ultimate audience includes all people directly or indirectly affected by the emergency.

The detail of public information management is provided in The Guide.

Scope Public information management is necessary before, during, and after a civil defence emergency.
Public information management deals with— 69 (1) (2) (3) (4) 70 (1) (2) 60 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued (a) media liaison: a two­way relationship with links to broadcast, print, and other media for prior planning and dissemination of warnings and exchange of information before, during, and after an event; and dissemination: collation of information, assessment, and provision of advice to people affected by a civil defence emergency, either through mass media, infor­ mation centres, or call centre operations.
(b) 71 Principles The principles underpinning management of public informa­ tion at a national level are: (a) before a civil defence emergency, news media represen­ tatives and public information managers of lead agen­ cies will have established a working relationship and an understanding of each other’s expectations during a civil defence emergency; and in a civil defence emergency, dependable, accurate, and timely information should be provided to accredited media to help the gathering and dissemination of news and information; and each agency that manages public information during a civil defence emergency should act according to a well­ developed and tested public information management plan; and national agencies and CDEM Groups may pool person­ nel and resources to provide a professional and timely media liaison service.
(b) (c) (d) 72 (1) National roles In the response and recovery phases, MCDEM will manage public information in a national civil defence emergency and support CDEM Groups in local emergencies.

(2) During a state of national emergency or a civil defence emer­ gency of national signiﬁcance, MCDEM will activate a pub­ lic information cell in NCMC.
This cell works with CDEM 61 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued Groups, emergency services, and other national agencies to co­ordinate public information.

The National Controller will, as required, issue news releases and ensure MCDEM’s website is kept up to date.

(3) (4) MCDEM will develop arrangements with national news media agencies to ensure effective and consistent broadcast of warn­ ings and information.
The New Zealand Red Cross will provide, on request by the police, a national inquiry centre to answer inquiries about people in the impact area.

(5) Mass evacuation 73 (1) (2) (3) (4) (5) Objective and scope If evacuation is required, the objective is to evacuate people in a timely, safe, and effective way.

In emergencies people are usually better off sheltering where they are, but evacuation must be considered when risks are too high and cannot be reduced.
Evacuation should take place only when the risk of staying in place is greater than the risk of shifting.

The type of evacuation is determined by the nature of the emer­ gency and the circumstances of the people affected.

This plan does not include the evacuation of agricultural or stock animals.

Types of evacuation 74 (1) Evacuation can be pre­ or post­event, voluntary or mandatory.
(2) A pre­event evacuation occurs when the level of risk is un­ certain and evacuation is recommended until the situation is contained.

(3) Voluntary evacuation occurs when people choose to move, ei­ ther without instructions or with instructions.

(4) A mandatory evacuation takes place when the lead agency for the emergency directs that people must leave an area.
62 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued Principles of evacuation 75 (1) As far as possible, evacuation and relocations should take place within a region.

When one CDEM Group cannot ac­ commodate its own evacuees, it should ask for and receive help from neighbouring areas.

National agencies may give support, and the National Controller will co­ordinate the operation as appropriate.
For evacuations in civil defence emergencies of national sig­ niﬁcance, the decision to evacuate should be taken in consult­ ation with the National Controller.

(2) 76 (1) (2) Deciding to shelter in place or evacuate Sheltering in place should be considered as the ﬁrst option, and speciﬁcally when— (a) (b) there has been signiﬁcant disruption to transport; or going outside could expose people to hazardous con­ taminants.
Evacuation may need to be considered when 1 or more of the following conditions apply: (a) (b) (c) (d) (e) personal safety is under continuing threat (for example, further volcanic eruptions are predicted or shelter against bad weather is inadequate): there are properties classiﬁed as unsafe or insanitary or both and there is a lack of suitable shelter or alternative accommodation: public health is gravely threatened (this will usually be as a result of serious, long­term disruption to water sup­ plies or sewerage systems): food and water are not available, or available supplies are contaminated or non­potable and pose a risk to health: the burden of caring for people in the area is far greater than it would be if they were evacuated.
This applies to certain groups (for example, tourist parties) more than to residents.

63 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued Identifying evacuees 77 (1) Any communication of a decision to shelter or evacuate must (2) (3) 78 clearly state to whom it applies.
The area to evacuate must be clearly identiﬁed, which will en­ able CDEM Groups and NCMC to estimate numbers to be evacuated and the resources needed to carry out the evacu­ ation.

If possible, the identity and circumstances of evacuees should be recorded.

Process for evacuation The process for evacuation (including command, control, and co­ordination, public instructions, special categories of evac­ uees, security, and evacuee return) is contained in The Guide.
International assistance for New Zealand Introduction 79 (1) An emergency in New Zealand may generate offers of assist­ ance from overseas governments and non­governmental or­ ganisations, or necessitate requests from New Zealand for ex­ ternal help.

The Government will address requests for, and offers of, over­ seas assistance through the government crisis management ar­ rangements of DESC.
(2) 80 (1) (2) Requests for international assistance The Government may request international assistance in a civil defence emergency.

The National Controller or the Director will seek approval for the deployment of international assistance.

(3) MCDEM may require international support to co­ordinate the entry and deployment of international assistance.
64 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 8—continued Offers of international assistance 81 (1) Offers to New Zealand of emergency assistance from inter­ national sources will be considered in the DESC system and managed by— (a) the Ministry of Foreign Affairs and Trade in the case of government­to­government assistance; or the New Zealand representatives of non­governmental organisations in the case of all other overseas assistance; or the National Controller, if there is no New Zealand rep­ resentative.
(b) (c) (2) Upon arrival in New Zealand, the assistance will be co­ordi­ nated through the National Controller or other agencies as ap­ propriate.

82 (1) United Nations Ofﬁce for the Coordination of Humanitarian Affairs (OCHA) The United Nations General Assembly Resolution 46/182 strengthened the United Nation’s international response to both complex emergencies and natural disasters.
The reso­ lution also created the high­level position of Emergency Relief Coordinator as the single United Nations focal point for complex emergencies, as well as for natural disasters.

(2) OCHA, under the direction of the Emergency Relief Coordina­ tor, co­ordinates humanitarian response, policy development, and humanitarian advocacy.

OCHA has a wide range of tools, which are developed, mobilised, and co­ordinated by the Field Coordination Support Section, based in Geneva.
These are— the United Nations Disaster Assessment and Coord­ (a) ination (UNDAC) team, which is a stand­by team of disaster management professionals who are nominated and funded by member governments, OCHA, and other United Nations agencies; and the International Search and Rescue Advisory Group (INSARAG), which deals with urban search and res­ cue (USAR) and related disaster response issues; the United Nations General Assembly Resolution 57/150 (b) 65 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 8—continued (c) (d) deals with strengthening the effectiveness and co­ordin­ ation of international USAR assistance; and the Virtual On Site Operations Coordination Centre, which provides an Internet tool to facilitate the infor­ mation exchange between responding governments and organisations involved during an emergency; and surge capacity available through OCHA, which pro­ vides a mechanism to rapidly deploy international re­ sources to emergencies with the aim of supporting the co­ordination function in the ﬁeld.
(3) New Zealand joined consensus on United Nations General As­ sembly Resolutions 46/182 and 57/150, which were adopted without vote.

OCHA is able to deploy resources at short notice if requested by New Zealand in a state of national emergency or a civil defence emergency of national signiﬁcance (further detail is contained in The Guide).

The United Nations maintains an international register of all types of assets available, which can be accessed, if necessary, through OCHA.
(4) 83 Ministry of Foreign Affairs and Trade The Ministry of Foreign Affairs and Trade will maintain ef­ fective lines of communication to foreign governments and international organisations on all aspects of a disaster both through New Zealand’s overseas posts and through foreign diplomatic missions accredited in New Zealand.
9 Recovery Civil defence emergency management recovery Scope The civil defence emergencies addressed by this plan will threaten the physical and emotional well­being of large num­ bers of people.

84 (1) 66 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 9—continued (2) The response to and efforts to recover from an emergency are interrelated.

(3) Action to achieve a response or recovery, or both, should be concurrent and co­ordinated.
(5) (4) Welfare activity will have started in the response phase at the beginning of the emergency and will continue through recov­ ery.

The aim of immediate recovery activity is to restore as quickly as possible the quality of life of those affected so that they are able to continue functioning as part of the wider community.

In the medium to long term the aim is to seek the regeneration of a community by addressing the economic, social, natural, and built environmental effects of an emergency.
This may take a short time or many years, possibly decades.

(6) (7) Measures to help recovery should be implemented as soon as possible, although early consideration will need to be given to the long­term implications of re­establishing affected commu­ nities in the same location as before the event.
(8) Generally, government assistance in recovery will only be con­ sidered in circumstances involving emergencies of an unusual type or magnitude, and will be made available only when re­ covery is beyond the capacity of the local community.

Recovery consists of co­ordinated efforts and processes to ef­ fect the short­, medium­, and long­term holistic regeneration of a community following an emergency.
(9) (10) Recovery encompasses the community and four environ­ ments— (a) (b) (c) (d) social; and economic; and natural; and built.

(11) These environments are the focus of recovery activity in the short, medium, and long term.

85 (1) Transition from response to recovery Recovery begins on day one of an emergency.
67 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 9—continued (2) This means the recovery arrangements are established and in­ formation received about the response is used as a basis for planning recovery.

(3) As the response concludes, a careful transition to recovery must be managed.
The transition from response to recovery in national emergen­ cies or civil defence emergencies of national signiﬁcance may be staged and variable across regions and areas.

It is expected that the transition from a state of national emer­ gency or a civil defence emergency of national signiﬁcance will be discussed and agreed between local, group, and na­ tional controllers.
The principal aspects of this transition are— a recovery action plan will— (a) (i) (ii) (iii) be prepared in association with the affected CDEM Groups; and be prepared in consultation with recovery task groups; and recognise those welfare arrangements estab­ lished during response that will continue through recovery; and (b) a communications plan will be developed in conjunc­ tion with relevant recovery agencies.
Process of civil defence emergency management recovery The process of civil defence emergency management recov­ ery, including decision­making, reporting, and media manage­ ment, is provided in The Guide.
Exit strategy It is important to establish an exit strategy which should in­ clude— (a) (b) assistance required in the long term; and a transition to business as usual so as to manage long­ term recovery; and planning and reporting in the long term; and (c) (4) (5) (6) 86 87 68 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 9—continued (d) management of public information and communica­ tions; and opportunities for communities to discuss unresolved issues and to continue to participate in their recovery; and changes to organisational arrangements including the need for task groups; and debrieﬁng and reviewing.
(e) (f) (g) 10 Government ﬁnancial support 88 Government ﬁnancial support for civil defence emergencies (1) Arrangements for government ﬁnancial support for emergen­ cies are determined by Cabinet.

The Guide is to be updated as necessary to record the current arrangements.

Ongoing work is being undertaken to further develop arrangements.

The provisions for government ﬁnancial support apply whether or not there is a state of national emergency or a civil defence emergency of national signiﬁcance.
(2) 89 (1) Principles for government ﬁnancial support Financial support towards response activities focuses on costs incurred in— (a) taking the necessary precautions or preventive actions (whether by evacuation of people, by construction, by demolition, or by any other means) to reduce the im­ mediate danger to human life, where those actions were begun during the response period: taking precautions or preventive actions with a view to reducing the impact of the event, where those actions were begun in the immediate period leading up to the event.
(b) (2) The purpose of emergency recovery is to restore the affected community to a position in which normal social and economic activity may be resumed as quickly as possible.

To achieve 69 Schedule National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 10—continued this, it is essential to have proper planning for risk manage­ ment.

The Government considers local risks to be a local re­ sponsibility.
Local authorities are primarily responsible for dealing with the impact of an emergency in their geographical and functional areas of responsibility.

Government assistance is contingent upon that expectation.

The aim of any government assistance is to provide the min­ imum level of assistance required to restore to the community the capacity for self­help and to provide solutions that are the most appropriate long­term solutions.
This does not imply an obligation to restore a community to a better state than existed before the emergency, and nor is there an obligation to restore to previous levels if those are not sustainable in the longer term.

Upgrading of facilities to a level greater than existed previously may be considered as special policy in cases where such upgrading would decrease the likelihood of a recurrence of the civil defence emergency.
Wherever possible, govern­ ment assistance will be provided in accordance with existing departmental policies.
Speciﬁc principles for recovery assist­ ance are that— (a) government has a role in the recovery process after a signiﬁcant civil defence emergency; and any government response programme should be de­ signed to restore the community capacity for self­help and be consistent with any government policies regard­ ing mitigation and alleviation measures; and initial and primary responsibility for recovery rests with the local community; and risk management and its associated costs should be car­ ried by the individuals, businesses, and local authorities that beneﬁt and are best able to manage or mitigate the risk; and individuals, businesses, and local authorities have a re­ sponsibility to the extent possible to insure against and attempt to minimise or mitigate risk, in advance of any event; and (b) (c) (d) (e) (3) 70 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 10—continued (f) government policies should encourage government or­ ganisations, local authorities, communities, businesses, and individuals in proper management practices such as— (i) (ii) (iii) (iv) (v) analysing local hazards and understanding risk exposure; and preventing the possibility of emergencies occur­ ring, or reducing their likelihood or impact; and adjusting infrastructures and practices to reduce vulnerability, to mitigate the consequences, and to limit potential damage; and providing for effective and efﬁcient response; and providing resources for recovery (that is, phys­ ical and ﬁnancial provisions including adequate emergency reserve funds and insurance).
(4) Government recovery assistance will normally only be pro­ (5) vided if— (a) (b) (c) recovery procedures cannot be carried out without gov­ ernment assistance; or there is a statutory requirement for action, or a need to invoke a statute to achieve the ends desired from the recovery process; or government assistance will aid the co­ordination of the recovery process to a signiﬁcant extent; or there are advantages of economies of scale.
(d) In addition to immediate response measures co­ordinated by MCDEM or other departments, government can normally be expected to provide the following: (a) emergency feeding, housing, and welfare assistance for affected people where this assistance is not available from other sources or agencies; and transportation assistance if evacuation becomes neces­ sary; and restoration of those services and facilities that are the Government’s responsibility to provide (for example, schools, and highways); and (b) (c) 71 Schedule 1 National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 10—continued (d) (e) (f) assistance in the assessment and appropriate restoration of those services and facilities that other agencies are responsible for providing if— (i) (ii) insurance cannot be obtained; or the responsible agency cannot effect restoration within an appropriate time frame; and technical assistance with respect to other damage (this will normally be restricted to providing additional ex­ pertise to assist in the detailed assessment of damage, establishing procedures, and any necessary support to expedite insurance claims and damage repair, and, if ne­ cessary, temporarily providing additional labour to ex­ pedite clean­up operations); and co­ordination of the response from government through the Director and, if necessary, the appointment of a Re­ covery Co­ordinator and the staff and facilities neces­ sary for the Recovery Co­ordinator to carry out his or her role.
Appendices Appendix 1 National warnings cls 60(4), 62(5) Civil defence emergency management hazards for which national warnings can be issued Hazard Responsible agency Severe weather MetService Support agency or agencies MCDEM, Ministry of Health, CDEM Groups, police, ﬁre service, and nominated radio and TV 72 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 Schedule 2 Earthquake Volcanic unrest/eruption Institute of Geological and Nuclear Sciences Limited Institute of Geological and Nuclear Sciences Limited Tsunami MCDEM MCDEM, Ministry of Health, CDEM Groups, and ﬁre service MCDEM, Ministry of Health, CDEM Groups, police, and ﬁre service Ministry of Health, CDEM Groups, police, ﬁre service, and nominated radio and TV Note National warnings can be issued via the national warning system for any type of hazard.
Mode 1 Monitor cl 65(3) Appendix 2 NCMC modes Roles Monitor and assess incidents that may lead to a state of local emergency.

Scale Standby.

Minimal stafﬁng to monitor impending or actual event.

Monitor and assess local emergencies.

Other staff on standby.


73 Schedule 2 National Civil Defence Emergency Management Plan Order 2005 Reprinted as at 4 September 2007 In addition to monitoring activities: collect, analyse, and disseminate information on emergencies; report to/advise government; provide public information service.

In addition to interaction activities: process/co­ordinate requests for support from regional and local organisations.

Support agencies notiﬁed.

Standby.

Increased stafﬁng.

Support agencies kept informed.


Partial to full stafﬁng.

NCMC fully operational.

All supporting agencies activated.

2 Engage 3 Assist 74 Reprinted as at 4 September 2007 National Civil Defence Emergency Management Plan Order 2005 4 Manage Signiﬁcant emergency.

Collect, analyse, and disseminate information on emergency (including the provision of a public information service).

Full stafﬁng.

Control the overall response.

NCMC fully operational.

All MCDEM staff committed.


Co­ordinate logistical support, including aid from overseas and international liaison.

Report to/advise government.

All supporting agencies activated.

Diane Morcom, Clerk of the Executive Council.

Explanatory note This note is not part of the order, but is intended to indicate its general effect.

This order, which comes into force on 1 July 2006, makes the national civil defence emergency management plan set out in the Schedule.
Issued under the authority of the Acts and Regulations Publication Act 1989.

Date of notiﬁcation in Gazette: 17 November 2005.

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