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Civil defence and emergency management
Policy statement and principles
What
This chapter and related resources provide policy, principles and procedures applicable to
planning for and control of emergencies or disasters. In the event of a declared state of
emergency Civil Defence Emergency Management (CDEM) will take control with Police
providing support, carrying out assigned tasks while striving to continue providing services
to our communities.
Why
Police as one of the key agencies making up New Zealand’s emergency services is
responsible for enhancing community safety, and legislatively mandated to be the lead
emergency response agency to various types of incidents.
How
Awareness of, and/or competence in utilising:
the role of Civil Defence in New Zealand as governed by the Civil Defence Emergency
Management Act 2002
the principal roles and responsibilities of Police in an emergency, including:
maintaining law and order
protecting life and property
assisting the movement of rescue, medical, fire, and other essential services
assisting the Coroner as required by the Coroners Act 2006
coordinating movement control over land and conducting inland search and
rescue.
the Coordinated Incident Response System (either as a single or combined
emergency service response)
emergency management plans as developed and maintained by District
Commanders in each district, which provide for and form the basis for Police
action to cope with any emergency where an extensive co-ordinated response is
necessary
the powers available while a state of emergency under the Civil Defence
Emergency Management Act 2002 (CDEM Act) is in force.
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Overview
Introduction
Civil Defence in New Zealand is governed by the Civil Defence Emergency Management Act
2002. The Act provides for the establishment of a national strategy and national plan for
emergency management, and of regional Civil Defence Emergency Management (CDEM ())
Groups, which must produce emergency management plans for their area.
This chapter provides policy, principles and procedures applicable to planning for Police
control of emergencies or disasters and, where necessary, the passing of control to the
CDEM () organisation in the event of a declaration of a state of emergency.
Useful resources
This chapter should be read in conjunction with the following resources:
Civil Defence and Emergency Management Plan Order 2015
Guide to the Civil Defence and Emergency Management Plan 2015
Director’s Guideline for welfare services in and Emergency (DGL 11/15)
Control and Command Chapter
Disaster Victim Identification Chapter
Exotic Disease and Pest Incursion Chapter
The NZ Coordinated Incident Management Systems (CIMS)
Governance
The Civil Defence Emergency Management Act 2002 is the overarching element in the CDEM
() framework. The National CDEM Strategy, the National CDEM Plan, the Guide to the
National Plan and CDEM Group plans also form part of the framework, with the support and
participation of central and local government, emergency services, lifeline utilities, other
general infrastructure providers, businesses and volunteer agencies who are implementing
the CDEM arrangements
Civil Defence Emergency Management Act 2002
The Civil Defence Emergency Management Act 2002:
promotes sustainable management of hazards
encourages and enables communities to achieve acceptable levels of risk
provides for planning and preparation for emergencies, and for response and
recovery
requires local authorities to coordinate planning and activities
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provides a basis for the integration of national and local civil defence emergency
management
encourages coordination across a wide range of agencies, recognising that
emergencies are multi-agency events.
Civil Defence Emergency Management Group
Every regional council and every territorial authority within that region must unite to
establish a Civil Defence Emergency Management (CDEM) Group. A unitary authority must
establish a Civil Defence Emergency Management Group either alone or by uniting with a
bordering unitary authority or regional council.
Civil Defence Emergency Management structure
CDEM () is structured through 16 regional CDEM Groups based upon regional local authority
boundaries, which in turn builds on individual authority local capacity, integrated with
emergency services (Police, Fire and Health). Where Police district boundaries overlap they
must have planning and operational relationships with more than one CDEM Group. Refer
to this link for further information on the
CDEM structure.
At national level, Police, Fire, Health and other lead agencies all participate in 'whole of
Government' emergency management structures. A shared multi-agency National Crisis
Management Centre within Parliament is used to provide coordination of individual agency
operations headquarters and facilitate chief executives on an Officials Domestic External
Security Committee (ODESC) to report to Cabinet.
The diagram below identifies the structure for Civil Defence Emergency Management
groups.
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Coordinating Executive Group (CEG)
Each CDEM Group is required by section
20 of the Civil Defence Emergency Management Act
2002, to establish and maintain a Coordinating Executive Group (CEG) comprising chief
executives of the local authority members of the CDEM Group, chief executives of District
Health Boards, and senior members of New Zealand Police, and New Zealand Fire Service.
CEG responsibilities
The CEG is responsible for:
providing advice to the CDEM () Group and any subgroups or subcommittees of the
Group
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implementing, as appropriate, the decisions of the CDEM () Group
overseeing the implementation, development, maintenance, monitoring, and
evaluation of the CDEM Group plan.
Commissioner has delegated his power in respect of CEG
The Commissioner has delegated the power under section
20(1)(b) of the Civil Defence
Emergency Management Act 2002 to District Commanders and any employee of or above
the position of Superintendent who relieves a District Commander. The appointee must
attend or be represented at all meetings of the CEG.
Although the level of the Police appointee will depend on the local circumstances, it should
be at a level where resources can be committed and which shows that emergency
management is accepted as core business.
Other services or resources
This table details other relevant services and resources.
Service
Details
Emergency
Emergency services comprise Police, Fire Service and health sector
services
services that act together to plan for and respond to any emergency. In
addition the New Zealand Defence Force can provide support services.
Police
The principal roles of the New Zealand Police in an emergency are
maintaining law and order, protecting life and property, assisting the
movement of rescue, medical, fire, and other essential services, assisting
the coroner as required by the Coroners Act 2006, coordinating
movement control over land and conducting inland search and rescue.
The New Zealand Police are also responsible for the welfare services
inquiry sub-function under the National CDEM () Plan 2015.
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Fire service
The New Zealand Fire Service’s principal roles during an emergency are
firefighting, containment of releases and spillages of hazardous
substances, urban search and rescue (USAR), limitation of damage and
redistribution of water, in consultation with the relevant territorial
authorities for firefighting.
Health
The Ministry of Health and all other health services undertake the
services
planning necessary to provide health services, including minimising the
effects of infectious diseases, in the event of any emergency.
Lifeline
Lifeline utilities cover the infrastructure needs of the community such as
utilities
water, wastewater, transport, energy and telecommunications.
Co-
The
Co-ordinated Incident Management System (CIMS) is used by
ordinated
agencies to co-ordinate their response and recovery efforts. It involves
incident
teamwork, common terminology and operating structures, the
management integration of communications, and other management requirements to
system
deliver emergency management.
See ‘
Multi-agency response to incidents’ chapter.
Definitions
Table of definitions
This table defines terms relevant to civil defence and emergency management.
Term
Definition
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Civil defence
'Civil defence emergency management' means the application of
emergency
knowledge, measures, and practices that are:
management
necessary or desirable for the safety of the public or property
designed to guard against, prevent, reduce, or overcome any
hazard or harm or loss that may be associated with any emergency;
and includes, without limitation, the planning, organisation, co-
ordination, and implementation of those measures, knowledge,
and practices.
Civil Defence
'Civil Defence Emergency Management Plan' means a National Civil
Emergency
Defence Emergency Management Plan or a Civil Defence Emergency
Management Management Group Plan.
Plan
Controller
'Controller' means the person who is the national controller in
accordance with section
10, or a group controller appointed under
section
26 of the CDEM () Act 2002. Can also mean a local controller.
Co-
The Co-ordinated Incident Management System (CIMS ()) is the primary
ordinated
reference for incident management in New Zealand. The purpose of CIMS
Incident
() is to achieve effective coordinated incident management across
Management responding agencies for all emergencies regardless of hazard, size and
System
complexity.
(CIMS)
Disaster
A disaster is a sudden or great misfortune resulting in loss of life,
serious injury, or property damage.
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Emergency
'Emergency' means a situation that:
is the result of any happening, whether natural or otherwise,
including, without limitation, any explosion, earthquake, eruption,
tsunami, land movement, flood, storm, tornado, cyclone, serious
fire, leakage or spillage of any dangerous gas or substance,
technological failure, infestation, plague, epidemic, failure of or
disruption to an emergency service or a lifeline utility, or actual or
imminent attack or warlike act
causes or may cause loss of life or injury or illness or distress or in
any way endangers the safety of the public or property in New
Zealand or any part of New Zealand
cannot be dealt with by emergency services, or otherwise requires
a significant and co-ordinated response under the CDEM () Act
2002.
Epidemic
An epidemic is a disease affecting or tending to affect an atypically large
number of individuals within a population, community or region at the
same time.
State of
A 'state of emergency' means a state of local emergency declared under
emergency
section
68 and section
69 of the CDEM () Act 2002.
State of
A 'state of national emergency' means a state of local emergency
national
declared under section
66 of the CDEM Act 2002.
emergency
Hazard
Hazard means something that may cause, or contribute substantially to
the cause of, an emergency.
Hazardscape
Hazardscape means the net result of natural and man-made hazards
and the risks they pose cumulatively across a given area.
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Hazardous
'Hazardous substance' (in terms of the Hazardous Substances and New
substance
Organisms Act 1996) means, unless expressly provided otherwise by
regulation, any substance with one or more of the following intrinsic
properties:
flammability
corrosiveness
toxicity, both acute and chronic
an explosive or oxidising nature
ecotoxicity with or without bioaccumulation
or properties which on contact with air or water, in the normal course of
events, generates a substance with any one or more of the properties
listed above.
Lead agency
Lead agency means the agency with the primary mandate for managing
the response to an emergency, as specified in Appendix 1 of the National
CDEM () Plan 2015.
Local
Local authority means a territorial authority, a regional council, or a
authority
unitary authority.
Local
A local welfare committee is a collective of agencies working together at
welfare
the local level to prepare for and manage the coordinated delivery of
committee
welfare services to affected people in their local area during an
emergency.
Local
A Local Welfare Manager plans for and manages the delivery of welfare
Welfare
services to affected people in their local area during an emergency.
Manager
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National
The National Crisis Management Centre (NCMC) is a secure, all-of-
Crisis
government coordination centre used by agencies to monitor, support,
Management or manage a response at the national level.
Centre
It is an example of a National Coordination Centre (NCC). MCDEM () is
responsible for maintaining the NCMC () in a state of readiness, and will
act as the lead agency for CDEM ()-led responses.
National
'National significance' includes, without limitation, any case where the
significance
Minister or the Director considers that:
there is widespread public concern or interest
there is likely to be significant use of resources
it is likely that the area of more than one Civil Defence Emergency
Management Group will be affected
it affects or is likely to affect or is relevant to New Zealand's
international obligations
it involves or is likely to involve technology, processes, or methods
that are new to New Zealand
it results or is likely to result in or contribute to significant or
irreversible changes to the environment (including the global
environment).
National
The National Welfare Coordination Group (NWCG) Provides strategic
Welfare
oversight for the planning and development of integrated welfare
Coordination services. The NWCG provides coordination at the national level, and
Group
support to CDEM () Groups at the regional level.
Membership comprises the agencies responsible for each of the welfare
services sub-functions, as listed in the National CDEM Plan 2015.
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National
The National Welfare Manager provides direction and support to CDEM ()
Welfare
Group level welfare planning, and leads the coordination of welfare
Manager
services at the national level. The National Welfare Manager is
appointed by MCDEM (); alternate National Welfare Managers with
suitable experience are also appointed (as per clauses 62(4) and 62(5) of
the National CDEM Plan 2015).
The responsibilities of the National Welfare Manager are listed in
clauses 65 and 66 of the National CDEM Plan 2015.
Public place
'Public place' means a place that, at any material time:
is open to or is being used by the public, whether free or on
payment of a charge, and whether or not any owner or occupier of
the place is lawfully entitled to exclude or reject any person; and
includes, without limitation, any aircraft, hovercraft, ship or ferry or
other vessel, train, or vehicle carrying or available to carry
passengers for reward.
Recovery
'Recovery activities' means activities carried out under this Act or any
activities
Civil Defence Emergency Management Plan after an emergency occurs,
including, without limitation:
the assessment of the needs of a community affected by the
emergency; and
the co-ordination of resources made available to the community;
and
actions relating to community rehabilitation and restoration; and
new measures to reduce hazards and risks.
Civil defence emergency management
Managing incidents
Incidents are managed by single or combined emergency service response under the
Coordinated Incident Response System version 2 (CIMS). Larger scale incidents may require
emergency services, local authorities, lifeline utilities, government departments and others
to coordinate their response.
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The response can be coordinated by either the lead agency (such as MAF for a bio security
event), or through CDEM () Groups.
National emergencies
Group/role/resource Function
Director of Civil
The Director of Civil Defence Emergency Management is
Defence Emergency
responsible for civil defence emergency management at a
Management
national level. During a state of national emergency, the Director
directs and controls the resources available for civil defence
emergency management. The Director can delegate these powers
to a National Controller.
National Civil
Section
s 31 and
33 of the CDEM () Act 2002 require the Minister
Defence Emergency
to develop a national civil defence emergency management
Management
strategy. This strategy covers the Crown's goals, objectives and
Strategy
targets in relation to civil defence emergency management in
New Zealand.
National Civil
The National Civil Defence Emergency Management Plan
Defence Emergency
identifies and provides for:
Management Plan
national hazards and risks and what is required to manage
(section 39(2) CDEM
them
Act 2002)
the plan's objectives and how they relate to the national
civil defence emergency management strategy
the co-ordination of civil defence emergency management
during a state of national emergency.
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Civil Defence
During a state of national or local emergency the Director of Civil
Emergency
Defence Emergency Management or group controller, or each,
Management
has an advisory group on which the Police are represented. The
Coordinating
executive groups are established and maintained by the
Executive Groups
Emergency Management Groups.
The representative on the executive group is "a senior Police
employee who is assigned for the purpose by the Commissioner
of Police" (section
20(1)(b)). Usually, the senior employee
nominated is the Operations Inspector.
District Commanders appoint Police liaison officers to local
CDEM () controllers as required. In addition, Police may need
liaison officers at national and regional Civil Defence
headquarters.
Local emergencies
Group/role/resource Function
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Civil Defence
A CDEM () Group is established in each region and comprises
Emergency
representatives from the regional council and each territorial
Management Groups authority within the region. Authorities can also unite to create
groups that cover more than one region. Each authority has one
representative, who is its chairperson or an elected person
delegated to act for the chairperson.
The CDEM () Group must:
identify, assess and manage hazards and risks in the
region, and consult and communicate about them
identify and implement cost-effective risk reduction
maintain and provide suitably trained and competent
personnel for effective civil defence emergency
management in its area
maintain and provide material, services, information and
any other resources for effective civil defence emergency
management in its area
respond to and manage the adverse effects of emergencies
in its area
carry out recovery activities
when requested, help other groups to implement civil
defence emergency management in their areas
within its area, promote and raise public awareness of, and
compliance with, the CDEM () Act and legislative provisions
relevant to the purpose of the CDEM Act
develop, approve, implement, and monitor a CDEM () Group
Plan and regularly review it
participate in developing the national CDEM () strategy and
the national CDEM Plan
promote civil defence emergency management in its area
that is consistent with the purposes of the CDEM () Act.
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Civil Defence
Each CDEM () Group must establish and maintain a Civil Defence
Management Co-
Emergency Management Co-ordinating Executive Group, whose
ordinating Executive members include representatives from the local authority,
groups
Police, Fire Service, and hospital and health services. The
(CEG) (section 20
Executive Group is responsible for advising the group,
CDEM Act 2002)
implementing its decisions and overseeing all aspects of the
CDEM Group Plan.
Group controller
Each group must appoint a person to be the group controller.
During a state of local emergency, the controller directs and co-
ordinates all the resources made available by departments,
CDEM () Groups and others. A CDEM Group can also appoint a
local controller to carry out any of the duties of the group
controller.
Recovery co-
If the Minister is satisfied that a CDEM () group is, or is likely to
ordinator
be, unable to effectively carry out recovery activities in its area,
the Minister can appoint a recovery co-ordinator who is
responsible to the Director, and has all the functions, duties and
powers of the group controller if the notice appointing him or
her provides for this, and:
there is no CDEM () Group Plan, or
the Minister is satisfied that the group controller for the
area is, or is likely to be, unable to exercise the statutory
functions of a controller.
For further information refer to
Part 5 of the Control and Command Chapter
Emergency services coordinating committees (ESCC)
Coordinated control of emergency services is an essential factor in the successful outcome
of Police controlled, or supported emergencies or disasters.
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District Commanders may maintain an ESCC to cover their area of responsibility. ESCC must
be integrated within CDEM ()Group structures to promote cross agency coordination. ESCC
should identify high risk/high hazard businesses, including underground coal mining
companies and relevant partner agencies to establish relationships and test emergency
response plans.
Note: Where ESCC are maintained meetings must be held at least once every six
months.
The ESCC must establish methods of control, organisation and communication to facilitate
the coordinated deployment of resources and services. It must also ensure compliance with
national agreements in relation to control or coordination functions at emergencies or
disasters. The membership of an ESCC should comprise a senior Police employee, and
representatives from:
local fire and ambulance services
CDEM () group controller
CDEM () - regional and local Emergency Management Officers (EMOs)
organisations assisting with resources or expertise
local NZDF - where relevant.
Hazardous Substances Technical Liaison Committees (HSTLC)
Where the New Zealand Fire Service has established HSTLCs, District Commanders must
ensure that Police are represented on the committees.
The nearest HSTLC must be advised of all incidents or emergencies that involved hazardous
substances.
A HSTLC must provide expertise in dealing with emergency situations arising from the
transportation or use of hazardous substances, and:
technical information on methods of neutralising hazardous substances (provided on
a 24 hour basis)
coordinating procedures for the correct method of control, decontamination and
disposal of hazardous substances
cataloguing sources of technical information on hazardous substances
providing advice on planning for emergencies involving hazardous substances.
Police assistance to Fire Services
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On request, Police must provide assistance to local fire services upon an outbreak of fire by
preserving order, protecting life and keeping access clear, so that firefighting is not
obstructed.
Special weather bulletins
The New Zealand Meteorological Service advises the Central Communications Centre in
Wellington of forecasts for potentially severe weather conditions which may endanger life
or property. Such weather warnings must be relayed by the Central Communications Centre
to the Police district(s) concerned.
District Commanders must ensure that appropriate action is taken on receipt of dangerous
weather bulletins, giving due consideration to:
slips, landslides or large scale erosion
boats in coastal or inland waters
coastal residents
strong or gale force winds
very high inshore waves
flooding, causing damage or community isolation
severe snow storms.
District Commanders must liaise, where applicable, with emergency services, local
authorities, Government departments or the NZDF, where the threat does not warrant a
declaration of civil defence emergency pursuant to the Civil Defence Emergency
Management Act 2002.
Where appropriate, warnings to the public should be broadcast over radio or television
stations covering the areas affected.
Note: Responsibility for issuing flood warnings is that of the regional council.
Warnings - Lifeline Utilities Services (electricity, gas etc.)
Where a major supply failure occurs to a lifeline utility service of regional or national
significance (e.g. electricity, gas) the responsible agency (e.g. Transpower, NGC) will advise
both Police and the Ministry of Civil Defence Emergency Management.
MCDEM () will advise Police and local authorities via the CDEM () National Warning System.
Police Central Comms will relay utility outage details and restoration timings to affected
Police districts, who in turn notify local emergency services.
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National Civil Defence warning messages - emergency or disaster
The Ministry of Civil Defence and Emergency Management (MCDEM) controls and operates a
national civil defence warning system for the purpose of warning organisations and
communities of the possible need for civil defence measures. As part of the National Civil
Defence Plan, Police must actively participate in the warning system.
National civil defence warning and trial messages are passed to Police Communication
Centres by MCDEM () and then by the Centres to the appropriate stations. The Master
Standard Operating Procedure (MSOP) for the passing of warning messages can be found
on the Communication Centres
site.
On receipt of warning messages Police personnel in districts must immediately:
acknowledge receipt
contact the local CDEM () EOC () and ensure the message has been received by them -
if it has not been received, tell them to contact MCDEM ().
District Commanders must ensure that Police personnel in their districts are conversant
with action required on the receipt of warning messages initiated by the MCDEM ().
Phases of emergency management
Four phases
There are four phases of emergency management:
Reduction
Readiness
Response
Recovery
The 4Rs, reduction, readiness, response and recovery, are New Zealand’s integrated
approach to CDEM. In the first two phases, the possibility of an emergency is anticipated,
and steps are taken to mitigate and prepare for it. The third and fourth take place only if an
emergency occurs. The four phases operate in a cycle and one phase may overlap another.
Phase
Definition
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Reduction Identifying and analysing long term risks to human life and property from
hazards; taking steps to eliminate these risks if practicable, and, if not
reducing the magnitude of their impact and the likelihood of their
occurring.
Readiness Developing operational systems and capabilities before a civil defence
emergency happens; including self-help and response programmes for the
general public, and specific programmes for emergency services, lifeline
utilities and other agencies.
Response
Actions taken immediately before, during or directly after a civil defence
emergency to save lives and protect property, and to help communities
recover.
Recovery
The coordinated efforts and processes to bring about the immediate,
medium-term and long-term holistic regeneration of a community
following a civil defence emergency.
Role of Police
Role of Police during reduction and readiness
New Zealand Police emergency and command planning forms the basis for New Zealand
Police operations, including action in a state of emergency, and refers to and integrates
with CDEM plans at national, CDEM Group, and local levels.
Police emergency management plans provide for:
early control of the scene of an emergency, co-ordinating essential services,
preserving life, and protecting property;
the establishment of a operations headquarters;
the callout of sufficient personnel to meet Police requirements;
basic procedures for dealing with an emergency, including alerting and liaising with
other emergency services; and
liaison at the appropriate level of the response with other elements.
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Further information relating to specific planning is contained in the Police emergency
planning section.
Multi-agency emergency management planning
Police participate in multi-agency emergency management planning and exercises
contributing to a co-ordinated response using the CIMS ().
CDEM () Group plans and local CDEM arrangements should cross-reference the appropriate
sections of police emergency plans. Each CDEM Group plan is encouraged to include a sub-
plan or section dealing with law and order and incorporate the following information:
reference to police emergency plans;
contact and liaison arrangements with the Police:
prior to the declaration of a state of emergency (this may include police liaison with
CDEM () Groups before an emergency);
during a state of emergency (this may include arrangements for continuous police
liaison at an EOC () and contact arrangements with the Police District Commander, or
nominee).
Police regularly test and exercise response arrangements
and participate in the National CDEM Exercise Programme.
Business continuity planning
PNHQ (), Communications Centres and District Commanders in each Police district must
maintain business continuity plans to ensure that critical Police functions can continue to
be delivered during an emergency.
Business continuity plans identify:
Key risks;
Prioritise business;
Plan for the continuance of critical business; and
Provide for the redeployment of staff in support of other districts.
Role of Police during response and recovery
The role of the New Zealand Police during the response to and recovery from an emergency
is to:
maintain the functions of the New Zealand Police as outlined in section 9 of the
Policing Act 2008 and the Act; and
assist with the dissemination of warning messages; and
gather and collate information regarding the event and disseminate; and
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assist the movement of rescue, medical, fire, and other essential services; and
co-ordinate movement control over land, including communications and traffic
control; and
conduct and support search and rescue operations; and
carry out disaster victims identification;(Hyper link to DVI Chapter) and
control access to and within an affected area so as to assist rescue, medical, fire, and
other essential services; and
conduct any initial evacuations to ensure protection of life; and
be responsible for a process to co-ordinate inquiries to assist family, whānau, and
next of kin to make contact with each other; and
trace missing persons and notify their next of kin; and
assist coroners as required by the Coroners Act 2006, in close liaison with the Ministry
of Justice and health services; and
support Controllers at the national, CDEM Group, and local levels and, when
requested, appoint New Zealand Police liaison officers to the NCMC, ECCs, and local
EOCs.
Note:
During the first 72 hours of an emergency, all resources (including
telecommunications networks and responding agencies) are stretched.
Public are encouraged to utilise their usual and pre-planned means of contacting
their family.
When a member of the public has exhausted these means of contact, and there are
genuine fears for the person’s safety, an inquiry can be made with Police.
Interagency coordination
To provide for inter-agency co-ordination, Police ensure that:
the Police National Manager: Response and Operations provides national co-
ordination through Police channels on behalf of the Commissioner of Police and
arranges for resource support when required
the Police District Commander or nominee will be the adviser to the CDEM () Group
controller under CDEM Group arrangements
Police District Commanders appoint advisers to local and group civil defence
controllers as required
when appropriate, a Police liaison officer is appointed to attend EOCs on a continuous
basis
Police communication centres exchange situation reports with EOCs.
At a national level, the following agencies are required to plan for and support the Police to
facilitate the inquiry process:
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MCDEM () as the agency responsible for the provision of the CDEM () welfare
registration system; and
the Ministry of Education as the agency responsible for providing enrolment
information (when legally able to do so) about current location of children and their
families when affected by an emergency; and
the Ministry of Foreign Affairs and Trade, as the agency responsible for the provision
of information about foreign nationals; and
the Ministry of Health, via contracts with DHBs and primary care and ambulance
services, as the agency responsible for patient registration; and
the New Zealand Red Cross, for the provision of an international tracing facility
through International Federation of Red Cross.
Coronial Support
Pursuant to the
Coroners Act 2006 Police must notify the coroner of any violent or
unnatural death that has occurred. The coroner’s role is to determine the identity of the
dead person 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 similar circumstances. In the course of this role, the coroner may authorise a post
mortem. The coroner is also required to authorise the disposal of the body.
As a general rule Police will accept overall responsibility for the recovery and identification
of human remains in a state of emergency. Emergency mortuary facilities will be arranged
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
regional councils and territorial authorities that have power to undertake the
emergency disposal of the dead under section
85(1)(g) of the Act.
Declaration of a state of emergency
Types of declarations
There are two types of declaration for a state of emergency:
State of national emergency.
Local state of emergency.
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When a declaration would be made
Most events will not require any form of declaration. Agencies such as local authorities and
government departments are able to provide services such as welfare support to displaced
people using existing mandates without the need for a declaration. However, a declaration
would be made when the use of specific powers is required, such as requisitioning.
Stages involved in the declaration of a state of emergency
Stage Description
1
District Commanders should commence an early liaison with regional CDEM ()
Group EOC () staff in the event of an impending or developing emergency likely
to be outside of, or beyond the scope of combined emergency services
response.
Note: Police may request or provide support irrespective of whether or not any
form of declaration is made.
2
Where an emergency is beyond the scope and resources of Police and combined
emergency services, the district commander may request the CDEM () Group to
provide support and/or declare a state of emergency.
3
Local Controllers must be kept informed of all related activities undertaken by
Police during a state of emergency.
4
The National Manager: Response and Operations, PNHQ (), must be notified
when a state of emergency is declared.
Requests for Police resources
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Requests
District Commanders decide on requests from local CDEM for the use of
from local
Police equipment and communications. Subject to operational
CDEM during exigencies, all reasonable requests for such resources should be granted.
exercises
Note: Police personnel participation in civil defence exercises will be at
Police cost.
Requests
During a state of emergency, requests for Police resources must be dealt
from local
with according to actual Police commitments and the circumstances
CDEM during prevailing at the time.
actual
emergencies
Use of
Requests for the use of Police premises should be declined and civil
Police
defence officials must be encouraged to centre their activities and
premises
operations elsewhere so as to not affect overall Police efficiency.
Supporting
Activation procedures and the extent of Police resource commitment in
other
support of other lead agency events (e.g. Health, Civil Defence,
agencies
agricultural etc.) must be developed by Police CEG representatives and
specified within Police district emergency plans and reflected in CDEM
group plans.
Police role during a state of emergency
General
Police is one of the key agencies making up New Zealand’s emergency services and is
responsible for reducing crime and enhancing community safety. Police is also the lead
agency for tourism and major transport accident emergencies. The principal roles of the
Police in an emergency are maintaining law and order, protecting life and property,
assisting the movement of rescue, medical, fire, and other essential services, assisting the
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coroner as required by the Coroners Act 2006, coordinating movement control over land
and conducting inland search and rescue. Police is also responsible for the welfare services
inquiry sub-function under the National CDEM Plan 2015.
Objective
The objective of the New Zealand Police is to minimise the consequences of an emergency
on individuals and the community by carrying out the functions of New Zealand Police
under the Policing Act 2008.
Emergency response process
This table details the Police emergency response process.
Stage Description
1
If an emergency has occurred or may occur that requires a significant and co-
ordinated response beyond that usual for Police or emergency services, then
the Police District Commander must arrange for liaison with the appropriate
local or CDEM () Group Emergency Management Office or EOC () as soon as
possible.
2
If a local or CDEM () Group response to the emergency is established, then the
Police District Commander must notify the Commissioner of Police (through the
National Manager: Response and Operations and the National Command and
Coordination Centre) immediately.
3
A declaration of a state of local emergency may be made following the
declaration process of the Group’s CDEM () plan. This process may include
consultation with Police and emergency services, local and group controllers,
and the Emergency Management Office.
4
Any request for a declaration of a state of local emergency, by Police or others,
must go through the relevant CDEM () Group processes. A declaration may only
be made by the person(s) nominated in the CDEM Group plan.
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5
If a declaration of a state of local emergency is requested of a CDEM () Group
but is refused, the matter may be referred to the Commissioner of Police
(through the National Manager: Response and Operations) for resolution in
consultation with the group and the National Controller.
Principles of Police involvement
As stated in section 39 of the
National CDEM Plan 2015 – the principles underlying the role
of Police are to use:
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 employee in charge, subject to
any direction given by the Operation Commander
any measures taken by anyone other than a Police constable for the maintenance of
law and order must conform to any directions given by Police when a state of
emergency is imminent or in force
the Commissioner of Police through the Police National Manager: Response and
Operations may arrange for reinforcements to be deployed from districts not directly
affected (the Police National Manager: Response and Operations will co-ordinate
inter-district movement of Police personnel in consultation with the National
Controller)
Police have powers of compulsion under the Act when a state of emergency is in force
and may also authorise someone else to exercise any of these powers.
Police emergency plans
The emergency plans maintained by District Commanders in each police district provide for
and form the basis for police action to cope with any emergency where an extensive co-
ordinated response is necessary, and form the basis for Police action to cope with any
emergency where an extensive coordinated response is necessary, and forms the basis for
Police action.
In the event of a state of emergency, District Commanders in each district maintain
emergency plans that provide for Police action to cope with any emergency where an
extensive co-ordinated response is necessary. These plans form the basis for Police action
in a state of emergency and refer to and integrate with CDEM Group plans.
Police emergency plans also provide for:
the achievement of early control of the scene, the co-ordination of the activities of
essential services, and the facilitation of the preservation of life and the protection of
property
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the establishment of a Police Operations Headquarters
the callout of sufficient personnel to meet Police requirements
basic procedures for dealing with the event, including alerting and liaising with other
emergency services
liaison at the appropriate level with other elements of the response and coordination
team
the purpose of tracing casualties, evacuees, and missing persons, Police record
details of the person inquiring and the person inquired about on an emergency
reconciliation form (Check this ) and promptly forward a copy of the completed form
to the nearest public inquiry centre. In a large-scale civil defence emergency, the New
Zealand Red Cross/Crescent may establish a national inquiry centre to help with the
processing of inquiries.
Further information relating to specific planning is contained in the Police emergency
planning section.
Powers during a state of emergency
While a state of emergency under the Civil Defence Emergency Management Act 2002 (CDEM
Act) is in force, the particular powers of Part
5 are available, as shown in this table.
Police
While a state of emergency is in force, or the Director, a controller, or a
powers
person authorised by a CDEM Group considers that an imminent threat of
conferred
an emergency exists, Police may be issued with a warrant by a District
by warrant
Court Judge (section
78 (2) of the CDEM Act). The prescribed form and
content of the warrant are set out in section
79 of the CDEM Act. The
powers conferred by the warrant are set out in sections
80 and
81 of the
CDEM Act. The powers are to obtain information required urgently to
prevent or limit the extent of the emergency (see section
78(2) of the
CDEM Act). A warrant template is at Annex 7.A. of the Guide.
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Powers of
The CDEM () Act authorises Police and other authorised persons during a
compulsion state of emergency to:
evacuate any premises or place, or exclude persons or vehicles from
any premises or place where such action is necessary for the
preservation of human life (section
86 of the CDEM () Act)
enter, and if necessary, break into any premises or place within the
emergency area where it is believed on reasonable grounds that the
action is necessary for saving life, or preventing injury, or rescuing
and removing injured or endangered persons or permitting or
facilitating the carrying out of any urgent measures in respect of the
relief of suffering or distress (section
87 of the CDEM () Act)
totally or partially restrict public access on any road or public place
(section
88 of the CDEM () Act)
remove any aircraft, hovercraft, ship or ferry or other vessel, or
vehicle impeding civil defence operations and where reasonably
necessary for that purpose the use of force or breaking into any
such aircraft, hovercraft, ship or ferry or other vessel, or vehicle
(section
89 of the CDEM () Act)
requisition wide range of resources, where such action is urgently
necessary for the preservation of human life (section
90 of the CDEM
() Act)
direct any person to stop any activity that may cause or substantially
contribute to an emergency, or request any person either verbally or
in writing to take any action to prevent or limit the extent of the
emergency (section
91 of the CDEM () Act)
examine, mark, seize, sample, secure, disinfect, or destroy any
property, animal, or other thing in order to prevent or limit the
extent of the emergency (section
92 of the CDEM () Act).
Any Police constable may authorise someone else to exercise any of these powers, provided
that the Police constable believes the action is necessary for the reasons given in the
legislation.
Police role and function in general emergencies
Role of the Coordinator Operations: Emergency Management
The Coordinator Operations: Emergency Management, Response and Operations, PNHQ (),
performs a liaison function for District Commanders at a national level between
government departments and other organisations regarding:
emergency or disaster procedures
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civil defence planning and training
outbreaks of serious animal or plant diseases
pollution by oil, gas and dangerous or toxic substances.
The coordinator is responsible to the Commissioner:
for the preparation of broad guidelines relating to emergency or disaster planning,
within which districts should plan their local emergency or disaster activities
for the preparation of the Police National Emergency Management Plan and the PNHQ
() Emergency Management Plan
on request, for input into training courses for disaster management techniques.
National Civil Defence Emergency Management Plan
The National Civil Defence Emergency Management Plan contains civil defence priorities,
measures and procedures designed to coordinate and assist the emergency services with
their functions, duties and responsibilities during a state of emergency.
Police role in a civil defence controlled disaster or emergency
The Police role in a civil defence controlled disaster or emergency, are defined in sections
22 - 24 of the National Civil Defence Emergency Management Plan Order 2015. Key areas are
the:
protection of life and property
maintenance of law and order in the immanence of and during a disaster or
emergency.
Lead support role in certain types of emergencies
Police may have a lead or support role dependent on the type of emergency. A typical lead
role could be law and order emergencies such as:
civil disturbance
terrorism
security etc.
A support role to other agencies in other event types could include:
public health
bio-security
natural disaster.
Police responsibility to CDEM
The Police responsibility to CDEM () includes:
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taking all measures within its power and authority to protect life and property
including:
evacuation support and cordon control
facilitating movement of rescue, medical, fire and other essential services
assist with and support the registration and identification of casualties and
evacuees
providing representation at the National Crisis Management Centre (NCMC) and at
regional CDEM () Group and local EOCs, including the provision of two-way exchange
of information such as damage assessments and situation reporting
participation in the dissemination of CDEM () warning messages
maintenance of law and order
road traffic safety and movement control
arranging and carrying out
Disaster Victim Identification procedures to identify the
dead and provide for the requirements of the Coroner.
More emergency response information
Refer to the Police Manual chapters on:
Control and Command
Exotic disease or pest incursions
Disaster Victim Identification
Inquiry sub function
Introduction
Police has responsibility for leading and coordinating the inquiry sub-function of welfare
services in an emergency pursuant to section 69, CDEM () Plan 2015.
Inquiry involves identifying people who have been affected by an emergency and assisting
family, whanau and significant others (e.g. next of kin) to make contact.
During an emergency family, whanau and significant others want to make contact with one
another to confirm their whereabouts and safety. As a result large volumes of phone calls
are made by the public (via many available phone numbers) to various responding
agencies, regarding people who they are concerned about and seeking information on their
whereabouts and safety.
During the first 72 hours of an emergency all resources (including telecommunications
networks and responding agencies) are stretched. The public, through public messaging,
should be encouraged to utilise their usual and pre-planned means of contacting their
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family, whānau and significant others. When a member of the public has exhausted these
means of contact, or the person they seek is known to be in an area that has suffered major
damage, an inquiry can be made with the Police.
Support Agencies
The following agencies are required to plan for and support the Police to facilitate the
inquiry process:
Agency
Support
MCDEM ()/
Responsible agency for the provision of the CDEM () welfare registration
CDEM ()
system.
Group/ Local
Authority
Ministry of
Responsible agency for patient registration; via contracts with DHBs,
Health/
primary care, and ambulance services.
DHBs/
To ensure that patient management systems are maintained and
Primary
available for inquiry purposes using the National Health Index (NHI)
Care/
system (which allows interrogation and restricted information to be
Ambulance
shared with agencies such as the Police when requested)
Services
Ministry of
Responsible agency for information on foreign nationals.
Foreign
Affairs and
Trade
New Zealand
To provide international tracing facility through international Red Cross
Red Cross
and Red Crescent partners, e.g. via Restoring Family Links (RFL) which is
an international service operating in business as usual using social
media; telephone directories; club directories; door-to-door, talking to
neighbours etc.
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Ministry of
To provide enrolment information (when legally able to do so) to the
Education
Police regarding the current location (and identity) of children and their
families who have been affected by an emergency.
Reduction (inquiry sub function)
It is expected that people will, in the first instance take responsibility for contacting their
family, whānau or significant others using a range of methods before contacting the Police.
These might include:
pre planned meeting place
phone and/or SMS messaging
social media (FaceBook, Twitter, etc)
websites established for the purpose of connecting people during an emergency
Readiness (inquiry sub function)
Readiness includes the Police having in place:
a scalable call centre capability which has been developed and exercised;
a pre-determined 0800 number (held in reserve by Comms);
consistent public messaging prepared by Police Public Affairs and CDEM () Public
Information Management; and
other Government agencies supporting the Police led effort.
Response (inquiry sub function)
As an incident occurs Police Communications have the capability and capacity to meet the
demand of normal surges in inquiries by phone.
Inquiries are to be recorded in a standard format, enabling Police to activate and manage
the inquiry process. This may include activating Police District emergency plans to meet
staffing demands.
Police Family Liaison services will be part of the Police response to missing or deceased
person inquiries.
Recovery (inquiry sub function)
Recovery involves a planned return to business as usual, including a phased stand down of
any enhanced call-taking capability. Police will continue to manage the resolution of
inquiries that have not been resolved during the response phase. These inquiries, including
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ongoing Family Liaison service provision, may continue into business as usual activities.
Police emergency planning
Police emergency management plans
Police emergency management plans must be developed and maintained by District
Commanders in each district to provide for and form the basis for police action to cope
with any emergency where an extensive co-ordinated response is necessary.
These plans form the basis for Police action in a state of emergency and refer to and
integrate with CDEM () Group plans.
District Commanders must:
develop and maintain Police Emergency Management Plans, in consultation with
partner response organisations and Emergency Management Officers (EMOs)
plans must be designed to cope with potential emergencies or disasters relevant to
their districts. Whenever possible a single plan encompassing an ‘all hazards’
approach should be prepared;
plan, train and conduct exercises with key high risk/high hazard businesses, including
underground coal mining companies, and relevant partner agencies to establish
relationships and test emergency response plans;
ensure that all Police personnel in their area of responsibility are informed on current
local civil defence planning and must encourage positive attitudes towards civil
defence activities;
ensure that all senior Police (sergeants and above) acquaint themselves with CDEM ()
arrangements within their territorial areas of responsibility; and
ensure Police are involved in welfare co-ordinating groups at a national and group
level;
ensure that the plan is lodged with Communications Centres.
Joint plans where appropriate
Where geographical or urban boundaries intersect district boundaries, district commanders
may authorise joint plans covering two or more Police districts. For effectiveness, Police
district emergency/contingency plans must be integrated with those of other emergency
services, this can be achieved through the CDEM () Group planning process.
Key elements of an emergency plan
This table shows the key elements of an emergency plan.
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Relationship
Emergency plans must, where appropriate, refer to and complement
to other
existing:
plans
local and regional civil defence plans
airport ground safety plans
Ministry for Primary Industries plans; and
other local special emergency plans.
Police
In the event of any emergency or disaster not involving fire or the risk of
assuming
fire, or the declaration of a state of emergency, plans shall show Police
overall
assuming overall control and coordinating the activities of all
control in
organisations assisting at the scene. Specialist functions of the other
some cases
services will be coordinated under the umbrella of a Police command
structure.
(Refer to list of lead agencies in the National CDEM Guide)
Clear role
Plans must describe not only how Police act as lead agency in a Police
description
controlled event, but also describe the Police role as a support agency
to other event lead agencies, e.g. during a public health emergency.
Fire or fire
Where a fire or the risk of fire exists, Police at the scene must assume
risk
and retain overall control and coordination outside the immediate fire
area and liaise with the senior fire officer present.
Liaison
Plans should allow for liaison officers from the other services to be
officers
attached to the incident control and at operation headquarters as
required.
Four phases
Emergency plans shall cover the four phases of emergency management:
of
reduction
emergency
readiness
management
response
recovery.
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Retention of emergency or disaster plans
Emergency plans must be retained at district headquarters stations and at other stations or
adjoining districts as considered necessary by district managers. Copies must be placed in
strategic locations for ready access by senior district Police (sergeants and above).
Copies of Police district emergency plans must be provided to the Emergency Management
Office of each regional CDEM () Group to promote inter-agency integration and coordination
of emergency activity.
The district commanders must provide a copy of their district plan to the Coordinator
Operations: Emergency Management, Response and Operations, PNHQ (), for reference
purposes should the scale of a disaster prevent their district from responding adequately.
Maintaining current plans
District Commanders are responsible for ensuring that district and joint district plans are
maintained for accuracy and that there is an on-going review process.
Comments must be sought from regional CDEM () Groups as to currency of arrangements in
light of other agency changes.
Communications Centres
Communication Centres will have an active part to play in most emergency events up to and
during the declaration of a civil defence emergency. Prior to a declaration Communication
Centres will maintain their standard operating procedures with responsibility for P1 and P2
events. Upon declaration of an emergency and establishment of a district command centre
for managing the Police response Communication Centres will continue assisting the
district response with logistical support such as channel configuration and dispatch
support as required and within capacity. It is important to maintain clarity of command
during hand over of any incident or event from Communication Centres to DCCs.
Key District Emergency Plans, hard and soft copy, must be held within Communication
Centres and be regularly tested to ensure they are up to date.
District Command Centres
District Command Centres are responsible for setting up a coordinating centre for use
during emergencies or disasters.
Police liaison
District Commanders must provide for effective liaison and communications with other
emergency services, local authorities and lifeline utilities through regional CDEM () Group
Emergency Operations Centres (EOCs) and local authority EOCs.
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Alternative Police accommodation
District Commanders must plan for alternative premises to be used as headquarters or
Police stations in the event that the existing premises become uninhabitable. Details must
be included in district emergency or disaster plans.
Training
Note these points regarding training.
Courses
District Commanders must ensure that Police personnel take part in local
multi-agency training courses or exercises whenever possible. This includes
taking an active part in planning and coordinating appropriate training
courses.
CIMS
District Commanders must ensure that Police personnel are routinely
training
trained in CIMS () 4 training courses.
Exercises District Commanders should advise the National Manager: Response and
Operations at PNHQ (), of any impending Police controlled emergency or
disaster training exercise or major exercise controlled by any other agency
so that Police may be represented at the training exercise.
Requests for training assistance/support from the NZ Defence Force or any
other Government departments must be made through the National
Manager: Response and Operations at PNHQ ().
Costs
Costs for Police personnel to attend training or exercises must be met from
within district budget.
Effects of disasters on policing
Staff
The Police response will depend largely on their degree of preparation. Most of the staff
are likely to survive unharmed. They will have to assess Police injuries and damage, and
begin organising their response to the public.
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It may take two days to organise effective outside help. Local procedures must be in
place allowing staff to be relieved regularly. Twelve-hour shifts are the maximum that
anyone can work in such circumstances.
Staff morale and welfare
Emergency services personnel usually cope well and do not desert their posts to care for
loved ones. It is important to reassure them of the safety of their families as early as
possible.
Be alert to the signs of stress, and do not expect superhuman endurance and endless
reserves of calm either from yourself or from others. Remember that Police employees are
human beings. A disaster, particularly if it involves horrifying injuries or deaths, will
provoke a human response even from highly experienced people. Different people are
affected by different trigger incidents.
A number of factors contribute to personal distress, for example:
age
marital status
personality characteristics
experience
situational factors, such as the:
cause of the disaster and its scope
support available to workers
efficiency of the organisation.
Effects and how they manifest
Some people may find it difficult, or impossible, to cope with certain types of work at the
scene. Others may be hit by stress symptoms after the incident. A number of effects have
been observed in emergency services workers after a disaster. Any of these may appear in
the days and weeks following the disaster.
Effect
How it manifests
Emotional
Anxiety, depression, anger, guilt (the person believes that he or she
should have performed better - should have shown better judgement,
more endurance, greater strength and so on), irritability, feelings of
helplessness.
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Cognitive
Changes in memory and concentration, nightmares, intrusive thoughts
and imagery.
Behavioural
Altered use of substances (alcohol, cigarettes and caffeine), social
withdrawal, loss of interest in usual activities.
Relationship Irritability, inability to share feelings, isolation, conflicts in loyalty.
Somatic
Changed sleeping and eating habits, an increase in accidents and
personal health problems.
Motivational Values are re-orientated.
Important: You may fear that if you voice your distress you will be seen as 'weak'. On
the contrary, it may be of value not only to you but also to colleagues who are feeling
the same way.
Communications
Each Police district has radio and cell phone links between its headquarters, vehicles, staff
and Communications Centres. This network is, in the main, independent of Telecom or other
providers, particularly in the metropolitan areas.
There is a national telephone network between major stations, and a national data network
that carries electronic mail. These use both commercial and private microwave links. Access
to the Ministry of Defence message switching system and radio communications network is
available through PNHQ ().
The Civil Defence communications plan gives long distance Police communications priority
use of established radio emergency links.
Natural hazards
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Responses to major natural disasters such as an earthquake or flood is the responsibility of
Civil Defence, but Police will be expected to make decisions and take appropriate action
until centralised control has been established. Police should prepare for such incidents and
be aware of the likely effect on key facilities and mass care centres, and identify suitable
locations for establishing regulating centres.
For further information on the key hazards affecting New Zealand refer to the National
Hazardscape Report.
Man-made disasters
Chemical spills
Chemical spills are the responsibility of the Fire Service, but Police may be first at the scene
and will need to take appropriate action to ensure public safety. You may also be asked to
assist the Fire Service with crowd and traffic control.
Labelling
Except for transport and marshalling areas when they are attended, and freight container
storage areas, any workplace containing hazardous substances in commercial quantities
must display:
an entrance warning sign at every road and rail vehicle entrance, consisting of the
word HAZCHEM in 100mm black lettering on a 150mm by 600mm orange background,
like this:
a composite warning sign:
at the main entrance to a building or structure
at every entrance to a room or compartment that contains a hazardous
substance
on the outside surface of an above-ground tank and its perimeter wall
adjacent to the outside storage area.
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a site plan adjacent to the entrance warning sign, marked 'Emergency Site
Information' and giving the location of buildings, tanks and outside storage areas that
should carry Hazchem warning signs.
Vehicle labelling
For information on vehicle labelling, see the '
Dangerous goods inspections' chapter of the
Police Manual.
Liquefied petroleum gas and compressed natural gas
These are transported in rail containers of up to 23 tonnes capacity, and tanker loads of up
to 30,000lt. They can be stored and used in safety in the same way as petrol, but are
potentially far more dangerous in an accident.
Both are asphyxiates, which means they can displace oxygen in the lungs, causing
asphyxiation. In high concentrations they have a narcotic effect, causing drowsiness,
nausea and vomiting.
Liquefied petroleum gas
Liquefied petroleum gas (LPG) is a generic name given to a group of hydrocarbons derived
from crude oil or petroleum distillation processes. The most common of these are propane
and butane, which may be mixed commercially with varying amounts of other liquefied
petroleum gases. Commercial names include ‘Rock gas’ and ‘Handigas’.
LPG () is:
a gas at normal temperature and pressure. Under a moderate decrease in
temperature or increase in pressure, or both, it becomes a liquid weighing about half
as much as water, and is normally stored in that form
normally colourless and odourless, but an odorant is often added. Because of its
refractive index, the vapour sometimes shimmers
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flammable and explosive when mixed in proportions of 2 - 10 percent of vapour in air.
Beyond this range mixtures are either too weak or too rich to burn. LPG () burns in air
at temperatures of up to 2000 degrees C
one to two times heavier than air.
Note: Small quantities of gas may give rise to large volumes of an air/gas mixture; for
example, one litre of liquid will produce 50 - 275lt of vapour.
Hazards arise when procedures are followed incorrectly or accidents occur. For example:
both vapour and liquid are extremely cold and can cause severe frost burns and
damage to the eyes and lungs
LPG () vapour is highly volatile and can ignite on contact with hot engines, cigarettes,
or friction sparks from footwear or hand tools. Less common potential sources of
ignition include electronic equipment such as building alarms, camera flashes and
radios, and electrostatic discharges from synthetic fabrics
escaping gas may ignite and burn the container. Steel weakens at temperatures over
200 degrees C and is likely to rupture at over 300 degrees C. The higher temperature
and lower pressure make the LPG () boil and vaporise, the relief valves cannot cope
and the gas explodes. This event is called a 'BLEVE' - Boiling Liquid Expanding Vapour
Explosion.
The remaining liquid atomises and a fireball of up to 300m in diameter is formed, while
pieces of the container can be propelled up to one km. People have been killed by debris at
distances of up to 200m from the explosion and fatally burned at up to 75m distant.
The escaping vapour may travel up to 1000m and still ignite. Because it is heavier than air, it
travels along the ground and may sink into storm water drains. Local wind conditions may
make it accumulate in pockets of still air. A container that has been emptied may still
contain LPG () vapour at atmospheric pressure and may explode if an open or leaking valve
allows air in. All LPG containers should be regarded as potentially dangerous.
Compressed natural gas
Compressed natural gas (CNG) is domestic methane stored under pressure. It has the same
basic properties as ordinary natural gas. Lighter than air, it will dissipate rapidly if leaked.
CNG and air may explode in a mixture of 5-15 percent gas. Leakage into a confined space
such as a caravan may create a dangerous build-up.
An explosion inside the container is unlikely unless the container fails through overheating.
Such an explosion would be less devastating than an LPG () BLEVE, but could still kill.
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Fires
Fires are the responsibility of the Fire Service and Rural Fire Authorities, but Police may be
first at the scene, and will need to take appropriate action to ensure public safety. You may
also be asked to assist the Fire Service and Rural Fire Authorities with crowd and traffic
control.
This table shows some fire hazards.
Hazard Explanation
Smoke As well as suffocating victims, it can destroy visibility.
Toxic
Fires in vehicles, houses and rubbish frequently contain a variety of toxic
gases
fumes which are formed when plastic compounds burn. It is imperative that
Police and the public avoid inhaling these fumes. The most common gas
produced in fires is carbon monoxide. It is colourless and odourless, and can
asphyxiate victims well before the flames reach them.
Heat
Room temperatures in a fire can reach 1000 degrees C at eye level. Inhalation
will scorch the lungs.
Speed
A small flame can become a major fire within seconds.
Aircraft, maritime, train and bus crashes
Transportation mass disasters:
almost always occur without warning which increases the sense of shock for survivors
may take place in inaccessible locations
may result in severely damaged bodies, which increases stress among those in
recovery teams, and causes identification difficulties
will require that several other agencies be notified.
Criminal activity
In a disaster that has been deliberately or negligently caused, Police have a dual role to:
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assist with the disaster recovery procedures
investigate the crime and apprehend and prosecute the offenders.
Remember: The safety and welfare of victims is your first priority.
Managing oil pollution
Maritime Safety Authority (MSA) responsibility
The MSA () is responsible for preparing and maintaining the New Zealand Marine Oil Spill
Response Strategy.
Tiered response system
Tier Tier 1 responses are managed and controlled by the spiller.
1
Tier Tier 2 responses are managed and controlled by the appropriate local regional
2
council and may require Police involvement.
Tier Tier 3 and 4 responses are managed by the MSA () and may require significant
3
Police resources including inter-agency liaison at both the local level and the
and national incident support centre in Wellington.
4
Police role
The major roles for Police include:
advising MSA () of any spill
provision of liaison officers to the On-Scene Commander (OSC) appointed by either
the regional council or the MSA ()
perimeter, movement and crowd control, (perhaps including marine control where
resources allow)
provision of road escorts
investigative assistance if requested and appropriate.
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Police employees becoming aware of any spill should immediately advise the MSA ()'s
Marine Duty Officer on (04) 472-7367, and provide this information (if known):
witness's details
exact location of spill in relation to landmarks
time seen
source of spill
direction of drift
weather conditions and visibility
vessels in area at time
assessment of report (reliable - doubtful - unreliable).
OSCs have powers similar to those of a civil defence controller. The Maritime Transport Act
1994 provides for a Police constable to undertake some of the functions of an OSC. Once an
OSC has been appointed they should be consulted before Police act in this manner.
The responsibility for investigating the cause of a spill rests with the OSC and the MSA.
Police assistance with the investigation may be requested and should be granted if
resources and other priorities allow.
Police
media policy gives guidance to staff at scenes who may be approached by the media.
A record of all resources deployed by Police should be maintained.
Search and rescue
Urban search and rescue (USAR)
Urban search and rescue (USAR) is a specialised discipline for locating and rescuing
persons from collapsed structures or confined spaces. New Zealand has set up a national
USAR steering committee and has specialist USAR teams based in Auckland, Palmerston
North, and Christchurch. Police is represented on the national committee by the Manager:
Emergency Management, Operations Group, PNHQ ().
Note: Information on USAR is available on
www.usar.govt.nz.
The USAR teams are available for deployment in appropriate situations. Activation of the
teams is done through the NZ Fire Service Communications Centre.
Police will not be providing staff in this specialist role. However, it is desirable that 'front
line' staff has some basic understanding of USAR so that they can support the USAR team
on site. Category O of the USAR National Response and Training Tier System provides an
introduction of USAR and staff should undertake this course wherever possible. Courses
should be available through the local CDEMG.
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For more detailed information, see the '
Search and Rescue operations' chapter of the Police
Manual.
Emergency preparedness
General lack of preparedness
Most people intend to get around to preparing themselves, their family and their work
colleagues for disaster . . sometime. Sadly, disasters have a habit of happening before
'sometime' arrives. This section gives a brief outline of the essentials. Civil Defence has a
number of publications which deal with preparing for disasters, and these will give you
further details.
Be prepared
These general requirements apply, whether you are at home or at work:
Have a plan (see next section).
Know where to turn off lights, water, electricity and gas.
Know where to find the fire extinguisher or hose.
Learn First Aid.
Learn basic rescue and survival skills.
Learn personal protection skills.
Make sure that your house and property (and/or your workplace) are safe and secure.
Ensure that insurance cover is adequate.
Identify the hazards most likely to affect your community and your family.
Know the basic precautions for each type of hazard.
Know about fire safety and how to put out small fires.
Know your local CDEM () communication systems.
Have a disaster kit.
Have a neighbourhood (community or workplace) support plan.
Know your local CDEM () plan.
Know your school plan.
Know about post-disaster support and victim support.
Consider what your survival needs will be if you are away from home when a disaster
or emergency happens.
Disaster Preparedness Plan
All adults, and any children who are old enough to carry out plans unsupervised, should be
involved in disaster preparedness planning. If only one person knows what to do, and that
person is injured or away, the preparation is useless. Your plan should be written down and
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cover the areas listed in this table.
Area
What to cover
Names of
For a home plan - record the ages of anyone under the age of 12 or
family
over 60.
members
Names of the
For a work plan.
first aider(s)
and floor
warden(s)
Medical
Details of any medical conditions.
Emergency
Draw a plan and identify safe ways of exiting the building. Practise
escape routes
evacuation.
Safe
These will depend on the nature of the disaster. Consider different
shelter/areas
types of emergency and discuss a response to each type (for example,
storms - seek shelter away from windows; floods - seek higher
ground).
Meeting places
Family plans should include a predetermined meeting place outside
of the disaster area. You will need at least two - one local in the case
of a localised disaster such as a fire (for example, the playground
three sections up the hill) and one outside of your immediate suburb.
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Responsibilities In your plan you should allocate responsibility for various tasks in
preparing for and coping with the disaster.
Preparing
Storing emergency food and water.
Storing fuel and cooking utensils.
Checking torches and radio batteries.
Maintaining the disaster survival kit.
Maintaining the household 'getaway' kit.
Coping
Turning off gas, power and water supplies.
Organising emergency toilet and hygiene arrangements.
Collecting children from school.
Contacting extended family members to let them know that you
are okay, and where you are.
Dealing with the household pets.
Checking that neighbours are okay.
Note: The plan should be reviewed six-monthly.
Disaster recovery kits
These three types of kits should be ready at any time.
Type
What it should contain
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Home
A radio and spare batteries.
survival kit
A torch and spare batteries.
Cyalume light sticks.
Canned food (and can opener).
Bottled water.
First aid kit/medical supplies.
Warm clothing and blankets.
Baby needs.
Pet food/restraints.
Fire blanket.
Means of warming food and boiling water.
Personal
In a bag near your work area, keep:
survival kit
clothing - include a sweatshirt, a waterproof jacket, strong
(for work)
comfortable shoes, socks, track pants, a change of underwear
a box of high energy food bars
a large plastic bottle of water or lemonade
three days' supply of essential medication
other personal supplies
a torch and batteries.
Getaway
When it is necessary to evacuate your home in a limited time, having
kit
everything close to hand makes it possible to leave quickly without
leaving anything essential behind. Include:
family documents
money/cash
essential medicines
lightweight energy food
a survival blanket
precious jewellery, photographs
a warm item of clothing (for example, a coat)
baby needs.
Evacuation
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Legal authority
Ascertain your legal power to evacuate. See '
Police-controlled emergencies'.
Responsibility for evacuation
Decision, planning and execution are the responsibility of Police Commanders. If the
evacuation appears to be beyond Police resources, the District Commander must ask for a
state of emergency to be declared.
Confidence and co-operation of those affected
This is essential. If people act on their own initiative they may disrupt or invalidate Police
efforts. Public confidence and co-operation may depend on:
awareness, resulting from an effective warning system
the timeliness of warnings and the decision to evacuate
adequate security for homes and property
adequate welfare arrangements throughout, including arrangements for pets
reassurance that they will be able to return to their homes as soon as possible.
Warning and information
After the first warning keep the public informed. Pass on decisions and advice. A variety of
means can be used, such as radio and television broadcasts, fire sirens, public address
systems and house-to-house calls.
Police evacuation plans
A Police evacuation plan should form part of the district emergency/disaster plans. Where
organisations have their own evacuation plans the district plan should contain at least:
emergency contacts
a warning system
assembly areas
prominent risk areas.
Pre-evacuation considerations
Pre-evacuation considerations include these questions:
What are the problems?
Is evacuation necessary?
What resources are required?
How will it be done?
How should people be told?
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What are the problems?
Establish the magnitude, extent and likely duration of the emergency, taking into account:
whether the danger is real or a possibility
the area and population involved
the time available
the possibility of a secondary stage to the disaster, such as subsequent earthquakes,
or explosions from hazardous substances.
Is evacuation necessary?
Recognise that:
people should be evacuated only to keep them safe
some personnel may have to stay behind to attend to vital functions
evacuees should be returned to their homes as soon as possible or arrangements
made for their ongoing welfare.
Note: The risk of evacuation must not exceed the risk of staying put.
What resources are required?
Consider these areas:
Staff.
Transport.
Equipment.
Communications.
Logistics.
Remembering that some roles may overlap, ask what is needed from outside organisations
and consider:
availability, including response times
capability
durability (rest, replenishment and servicing).
How will it be done?
Address:
the degree of urgency
how many are to be evacuated, and in what order
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the location of people with special needs, such as hospital patients and the elderly
pre-evacuation registration
transport and consider:
timetables - what are the turn-around times? Remember fuelling and servicing
routes. Avoid congestion, and make sure everyone is informed of any restrictions
pre- and post-evacuation assembly areas, keeping safety and access in mind. They
should be well known features such as schools or sports grounds, and preferably
sheltered
welfare requirements.
How should people be told?
The timing of the announcement will depend on the circumstances. Remember:
it is not necessary for everyone to be told at the same time but it is often helpful to
let key people know in advance
a community that has been kept informed and is prepared for evacuation will be able
to respond at the most appropriate time
if you have to decide on evacuation before planning is complete an early
announcement is essential. Its wording will determine people's response. Be clear,
and tell them:
why they are being evacuated
how they are being evacuated
when it will begin
where they are to assemble.
Post-evacuation considerations
These will depend on the reason for the evacuation, any deficiencies in the arrangements
and the duration and conditions of the movement. In any case, a coherent reception plan is
essential. Remember:
Reception must be efficient and orderly - evacuees may be stressed and efficient
procedures can minimise future problems. The reception centre must have toilets,
and facilities for preparing and supplying food.
If registration has not been completed earlier it should follow reception as soon as
possible. The process must be simple and efficient.
If large numbers need overnight accommodation obtain a civil defence declaration so
that you can use the Civil Defence welfare plan.
If such a declaration is not required, the Salvation Army and the New Zealand Red
Cross may help. Catering may be done by the New Zealand Defence Force, hospitals or
other large institutions. Local agencies should be listed in the district emergency
plan. Local Civil Defence plan welfare sections may provide guidance.
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Remember: Registration and welfare arrangements are very labour intensive. This
factor may determine whether or not a civil defence emergency is declared.
Hazardous chemicals
This section contains the following topics:
Preparing for incidents
Driver's responsibility
General
LPG
LPG approach and evacuation procedure
CNG evacuation procedure
Preparing for incidents
Police should prepare for incidents in liaison with the Hazardous Substance Technical
Liaison Committees. Plans must emphasise control, co-ordination, communications and
accountability.
Driver's responsibility
When a vehicle incident involving commercial quantities of a hazardous substance occurs,
the driver, if uninjured, should:
move the vehicle to a place where the leakage will cause least harm
make it safe by disconnecting the battery
keep the public away
remove casualties from the danger area if further injuries will not result
remain with the vehicle and have the emergency services notified
give the emergency services all the necessary information, including the emergency
procedure guide and hazardous substance declaration.
General
Follow these steps when you encounter a vehicle incident involving a hazardous substance.
Step Action
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1
If possible, identify the chemical. In doing so, do not expose yourself to danger
and try, in the following order, to:
obtain the emergency procedure guide and hazardous substance
declaration from the driver, if the driver has escaped unharmed
contact the transport firm, if time allows
approach upwind or uphill of the incident and read the UN number,
Hazchem Code or other markings.
Note: Go no closer than is necessary, and avoid inhaling fumes.
2
If all of this fails, you should leave the identification to the Fire Service. However,
if you have to take immediate action to save life and must identify the chemical,
retrieve the emergency procedure guide and hazardous substance declaration
from the vehicle. These are usually kept in the door or near the driver's seat. In
trains, the dangerous goods declaration is attached to the wagon card at the end
of the wagon, or the wagon memo waybill in the train operator's compartment.
Note: Do not enter or approach the vehicle unless you are satisfied that you can
do so safely.
3
Avoid the spillage and do not introduce any sources of ignition such as
cigarettes, radios or vehicle engines.
4
Inform the Communications Centre immediately and ask for the Fire Service to
be told:
the exact location of the incident
the types of vehicles or premises
the substance name and UN number, the emergency contact number and
any other relevant visible information
whether there is a fire or spillage
whether anyone is injured or trapped
possible safe access to the scene
weather conditions: wind, humidity and temperature.
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5
Await advice from the Communications Centre via the Fire Service.
6
Isolate the scene and do not try to rescue anyone until you know it is safe to do
so.
7
Control the scene until the Fire Service arrives.
Police employees who have been exposed to hazardous substance incidents should be
examined by a Police medical officer as soon as possible and in any case within 24 to 48
hours.
LPG
The New Zealand Fire Service is responsible for containing LPG leaks and dealing with any
fire. Police must support the senior fire officer at the scene and the primary tasks are to:
evacuate the area to a 300m radius, and any other areas as required by the senior fire
officer
keep out anyone not essential to the operation.
Note: Keep staff to a minimum and do not deploy them in a vapour area requiring
protective clothing and breathing apparatus. This is the responsibility of the Fire
Service.
LPG approach and evacuation procedure
Follow these steps.
Step Action
1
Assume that there is a risk of a boiling liquid expanding vapour explosion
(BLEVE).
2
Establish a safe approach route in consultation with the Fire Service.
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3
Ask the senior fire officer about where to leave your vehicles. They should be on
high ground and/or upwind of the danger area, and far enough away that their
radios cannot ignite the vapour. If you leave them unattended turn the radios off.
4
Evacuate all non-emergency personnel immediately.
5
Clear the area downwind of the container first, and in a crosswind direction.
6
Do not use motor vehicles in the danger area and ask householders to turn off
potential sources of ignition before leaving.
CNG evacuation procedure
Follow these steps.
Step Action
1
Advise the Fire Service and co-operate with the senior fire officer at the scene.
2
Evacuate the area to a radius of 200m, or any lesser distance indicated by the
senior fire officer.
3
Keep the area clear until the danger is over.
Offences
This table details offences relevant to civil defence and emergency management.
Offence
Level of proof
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Failing to
You must prove the identity of the suspect and that they intentionally
comply with a failed to comply with a requirement in a Civil Defence Emergency
requirement
Management Plan.
in a Civil
Defence
Emergency
Management
Plan
Section
95 -
Civil Defence
Emergency
Management
Act 2002
Withholding,
You must prove the identity of the suspect and that they, when required
or giving
under section
76 to provide information:
false,
intentionally failed or refused to supply the information within
information
the time specified in the request; or
knowingly gave false information.
Section
96(1)
- Civil
Under section
76, the Director or a Civil Defence Emergency
Defence
Management Group can require any person to provide information that:
Emergency
is reasonably necessary for the exercise of civil defence
Management
emergency management, and
is in the possession of that person and can be provided without
Act 2002
unreasonable difficulty or expense.
No prosecution can be brought before the lapse of 10 working days
after the date on which the requirement to supply is imposed. During
this time, the person can appeal against the requirement. If the person
appeals, no prosecution can be brought until the appeal is determined.
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Disclosing
You must prove the identity of the suspect and that they intentionally
information
disclosed or used information in breach of section
83.
Section
97 -
Under section
83, any person who receives information following a
Civil Defence
requirement under this Act must not disclose or use it except for the
Emergency
purposes of the Act, and any person to whom that information is
Management
subsequently disclosed must not disclose it to others.
Act 2002
Obstruction
You must prove the identity of the suspect and that they, during a state
of emergency, threatened, assaulted, or intentionally obstructed or
Section
98 -
hindered any person exercising or performing a function, power, or duty
Civil Defence
under the CDEM Act.
Emergency
Management
Act 2002
Failing to
You must prove the identity of the suspect and that they intentionally
comply with
failed to comply with any direction given to the person under section
direction to
86.
evacuate
It is a defence to prove that the Controller or Police employee did not
Section
99(1)
have reasonable grounds for believing that, in all the circumstances,
- Civil
the requirement was necessary for the preservation of human life.
Defence
Emergency
Management
Act 2002
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Failing to
You must prove the identity of the suspect and that they intentionally
comply with
failed to comply with any prohibition or restriction imposed under
restriction on
section
88.
access
Section
100 -
Civil Defence
Emergency
Management
Act 2002
Offences
You must prove the identity of the suspect and that they:
relating to
intentionally failed to comply with any direction given to them
requisitioning
under section
90(2), or
intentionally failed to provide assistance under section
90(6).
Section
101(1)
- Civil
It is a defence against an offence under subsection:
Defence
(1)(a) to prove that the Controller or Police employee did not have
Emergency
reasonable grounds for believing that, in all the circumstances,
the direction to requisition property was necessary for the
Management
preservation of human life.
Act 2002
(1)(b) to prove that the suspect had reasonable grounds for not
providing assistance.
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Failing to
You must prove the identity of the suspect and that they intentionally
comply with a failed to comply with a direction given under section
91(a).
direction to
stop an
activity
Section
102 -
Civil Defence
Emergency
Management
Act 2002
Personation
You must prove the identity of the suspect and that they intentionally
personated or falsely represented themselves to be the Director, a
Section
103 -
Controller, a member of a Civil Defence Emergency Management Group,
Civil Defence
or a person acting under the authority of any of those people, or any
Emergency
person duly authorised or employed for carrying out any provision of
Management
this Act or any Civil Defence Emergency Management Plan.
Act 2002
Failing to
comply with
fire safety
regulations
Section
14 -
Fire Safety
and
Evacuation of
Buildings
Regulations
2006
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Failing to
You must prove the identity of the suspect and that they:
comply with
wilfully acted in contravention or failed to comply with any fire
any fire
control measure lawfully issued
control
wilfully gave or caused to be given or attempted to give to a fire
officer any false alarm of fire
measure
resisted, obstructed, hindered or deceived a fire officer in
exercising or attempting to exercise any power, function or duty
Section
61 -
under this Act
Forest and
wilfully removed, defaced, obscured or made ineffective or
Rural Fires
inoperative any forest gate or sign set up for the purpose of fire
control
Act 1977
failed without reasonable excuse to provide any information or
deliver any return as and when required by the national rural fire
officer
provided any information or made any return under this Act which
to that person's knowledge was false in any material particular.
District Incident Response Organisation Template
https://tenone.police.govt.nz/pi/civil-defence-and-emergency-management
60/60
