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Major Incident
Plan
Emergency Planning
Communities Directorate
Bridgend County Borough Council
June 2012
Version 2 (Web):
CONTENTS
Contents . 2
Foreword 4
Preface .5
Background
Plan Development
Updates & Amendments ..6
SECTION 1 Preparing for Emergencies.7
Aim
Objectives
Bridgend County Borough Council - Emergency Response
Civil Contingencies Act & Business Continuity
Risk
Recovery
Mutual Aid
Government Assistance
SECTION 2 Principles in Emergency Response .. 10
Multi-agency response structure: Strategic, Tactical & Operational
At the incident scene: inner & outer cordons, Forward Control Point
BCBC emergency response structure
General Standby, Activation & stand down procedures
Logging & Record keeping
Debriefing
SECTION 3 Internal Response .. 12
Emergency Plans
Emergency Incident Control arrangements
Director Responsibilities.
Emergency Planning Liaison Officer (EPLO)
Training & Exercising
Directorate Emergency Plans
Departmental key roles & responsibilities
Additional services
Elected Members
APPENDICIES
Appendix A Recovery Strategy .. 25
Appendix B Glossary of terms..27
FOREWORD
Bridgend County Borough Council recognises that although major incidents or disasters are
very rare, they can strike suddenly and unexpectedly often with devastating effect. Whatever
their cause we need to be prepared should the unexpected happen.
The Council has a duty to respond to the needs of the community following an emergency and
assist the emergency services in their response. It follows that we have a clear responsibility to
maintain plans to ensure we are prepared to respond effectively to such an emergency.
This edition of Bridgend County Borough Councils Major Incident Plan reflects the current
structure of the Council; key principles in emergency management; and the responsibilities
placed on the Council by the Civil Contingencies Act (2004).
The Plan outlines the procedures we have to enable the Council to respond effectively to
emergencies occurring within the County Borough, whilst ensuring best efforts are made to
continue the delivery of key services as far as practicable.
All members of staff that may be called on in the event of an emergency must be familiar with
the contents of this plan and the supporting Directorate Emergency Plans. I commend this
document to you and ask that you read it and attend any associated training or briefing events
connected with it.
Dr. Jo Farrar
Chief Executive
PREFACE
Background
This document is known as the Major Incident Plan (M.I.P.) and completes Bridgend
County Borough Councils emergency response arrangements. It is supported by two
other main Council plans which contain detailed information in dealing with, and
recovering from, a major emergency
Emergency Incident Control (E.I.C.) plan: which co-ordinates the Councils
immediate response management to the most serious disasters.
Recovery Plan: this outlines the processes and working arrangements required to
deal with the on-going recovery phase.
Plan Development
The Major Incident Plan has been developed to help the Council in preparing to respond
to a major disaster - taking into account duties imposed by the Civil Contingencies Act
(2004) and supporting government guidance. It is divided into four sections:
SECTION 1: Outlines the requirement to develop response arrangements, briefly
describes how potential hazards have been identified, and introduces the Councils
Recovery Strategy and signposts sources of external assistance.
SECTION 2:
No:
01
February 2005
CD
02
December 2005
JC & KM
03
November 2007
KM
04
November 2008
JC & KM
05
JC
06
LF & JC
Therefore, BCBC must maintain plans to ensure service delivery continues in the event of
an emergency, so far as is reasonably practical. All departments in the Council have
identified critical activities within service areas and produced Business Continuity plans to
ensure critical functions are maintained during business interruptions i.e. emergencies.
1.4. Risk
BCBC must carry out and maintain community risk assessments. The council has met this
duty through the South Wales Local Resilience Forum (SWLRF) Community Risk
Register and the County Borough Community Risk Register.
The SWLRF Community Risk Register identifies hazards on a South Wales area basis
categorising them as low, medium, high or very high. Each hazard scenario is graded
against the likelihood of its occurrence and the potential impact on the SWLRF area. In
designating a level of risk any mitigation measures are also taken into consideration. The
likelihood assessments are made on the basis of the hazard occurring over a five year
period on a predetermined scale as described in the Risk Register.
The Councils Community Risk Assessment identifies hazards in this area and assesses
the risk of them occurring. It uses the same risk categories, methods and hazard
classification as the SWLRF Community Risk Register but the scale and extent of the
hazard is reduced to fit local circumstances. Few of the hazards identified on either risk
register have been categorised as very high.
Bridgend faces typical risks such as:
Transportation including road, rail, air and marine traffic
Natural Hazards & the Weather including snow and flooding
Industrial heritage the remnants of the coal industry
Industry, business & commerce including gas pipelines, manufacturing and
various factory outlets (though none requiring offsite emergency plans under the
COMAH legislation.)
Utilities failure gas, water & electricity
Health emergencies examples such as E-Coli and Pandemic Flu.
Animal Health including Foot & Mouth, Swine Fever and Rabies.
Crowd related incidents sporting events, protest marches or music events
This list is not exhaustive and in planning terms there is still the possibility of any
uncategorised incident or scenario disrupting the council or the community, an example
being the potential Fuel dispute in April 2012.
1.5. Recovery
BCBC has now developed a separate Recovery Plan which describes the actions the
Council will take to help communities recover from a major disaster.
Recovery is more than simply the replacement of what has been destroyed and the
rehabilitation of those affected and is best achieved when the affected community is
involved in the process. (See Appendix A for more information on the councils recovery
strategy.)
NB - A mutual aid agreement has been set up by Bridgend, Neath Port Talbot and
Swansea Councils supporting a coordinated response to oil pollution incidents affecting
the coastline between the Rivers Loughour and Ogmore.
1.7. Central & Welsh Government Assistance
The Council may need to seek assistance (other than financial) from the Welsh
Government and/or Central Government even after mutual aid arrangements have been
invoked.
Welsh Government would endeavour to provide additional aid from whatever source
proved necessary and may assume responsibility for co-ordinating emergency response
measures. This aid might consist of certain items of Government equipment or resources
or of units of the Armed Forces with specific skills (see page 21 for information on Military
Aid to the Civil Community).
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2.3. Logging
Logging is the chronological recording of all information relating to the incident. This
includes recording all actions taken, decisions made, queries answered and questions
asked relating to gathering and disseminating information connected to the incident. Any
requests given or received for assistance and resources should also be recorded,
meetings minuted and agreements noted.
2.4. Debriefing
Debriefs are commonly carried out post incident to discuss the response, recognise good
practice and address areas that could be dealt with more effectively in future
emergencies. Debriefing may be held on a multi-agency basis, or for any individual
organisation to analyse their response.
South Wales Police will be responsible for convening and chairing a multi-agency debrief
soon after the Emergency Services stand down from the incident, usually within 1428
days.
Internally, each BCBC department manager must ensure a departmental debriefing
session is convened as soon as is practicable after the incident. In addition, the Chief
Executive is also likely to convene and chair an inter-Directorate debriefing as soon as is
practicable (or appoint an Officer to do so.)
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13
Street Scene:
Departments within Street Scene are responsible for providing the following:
Managing the highways network jointly with the Police, including road closures and
traffic diversion.
Provide transport from the private sector for the evacuation of the public by
implementation of an agreed contract.
Liaise with Public Protection and the Environment Agency for the disposal of waste
and contaminated materials.
Assist with liaison and attendance at any multi-agency Strategic (Gold) or Tactical
(Silver) command groups.
Regeneration & Development:
Aside from general support, departments within this Directorate would have a limited role
in direct emergency response. However, they would have a central part in the recovery
phase following the incident and are instrumental in providing services to achieve this.
Housing Services:
The role of Housing Services is to assess the housing needs of residents made homeless
as a result of an emergency or a major incident, and ensure the provision of temporary
accommodation, where appropriate.
In the event of the Rest Centre Plan being activated, they may be required to attend the
designated Rest Centre to resolve longer term housing needs of those affected by the
disaster.
Social Care Services:
The role of Social Services is to co-ordinate the provision of social and psychological
services to those who need support as a result of an emergency/ major incident. These
support services will be provided in conjunction with other statutory and voluntary
agencies.
In the event of the Rest Centre Plan being activated, the service can provide staff to assist
with evacuees in a designated Rest Centre if necessary.
14
Leisure Services:
The principle role of Leisure Services in responding to an emergency is to provide
suitable premises, staff and management to support the requirements of the emergency
(with inter-directorate support). Responsibilities include:
Management of Rest Centres for people made temporarily homeless,
Provision of leisure facilities for other emergency purposes (survivor centres,
humanitarian assistance centre, antiviral distribution etc.)
Education & Educational Psychology:
Provide support to schools experiencing an emergency as detailed in the Directorate plan.
If required the Directorate is able to assist individual schools by managing the incident
response on their behalf.
The Educational Psychology Service is able to provide a co-ordinated psychological
support service to pupils and staff that may have been affected by a traumatic experience.
Library Service:
Library Service will assist in issuing information to the public with regard to the progress
of the incident, including attending Rest Centres. The service will also release a mobile
communications vehicle if required.
Financial Services:
Financial Services will establish the necessary financial systems to facilitate the Local
Authoritys response, including specifically
Issuing designated financial codes to each department to record their expenditure
incurred from responding to the emergency.
Advising Elected Members and Officers as to the sources of finance available which
could include: Directorate budgets, Corporate Funds, Litigation i.e. court action
against the person or organisation who is deemed to have caused the Emergency,
and the Emergency Financial Assistance Scheme (formerly Bellwin)
Ensuring that Directors are aware that it is most likely that their Directorates may
have to absorb the initial costs of responding to the emergency.
If appropriate, consider establishing a Disaster Appeal Fund with assistance from the
British Red Cross for disaster victims.
15
Customer Services:
This service area is able to provide support to the EIC operation from within the
designated call centre facility to deal with general enquiries from the public relating to the
disaster or major incident
ICT:
The role of ICT during a major incident is to support the corporate response by providing
additional electronic and voice communication facilities as required and to assist in
accessing information which is available electronically.
Directorates have already identified through Business Continuity planning their critical
services and what software support they require.
In the event the EIC is established this section will provide support in supply and
commissioning of IT / Comms equipment.
16
Assisting with the Councils media response on local issues of the incident.
17
To save life and property, to render humanitarian services and the restoration of
normality.
Information gathering and hazard assessment to give advice to the Police and
enable them to advise the public on evacuation.
Consideration of the effect the Incident may have on the environment and the
action to be taken to minimise this.
18
In conjunction with the Local Authoritys Emergency Planning Officer to alert and coordinate the work of the Voluntary Aid Societies.
4.3. COAL INDUSTRY LEGACY
Although there are no longer working mines in the area the remains of the industry still
pose risks in the form of potential landslides, subsidence and gas build up.
The Coal Authority, sponsored by the Department for Energy & Climate Change, deals
with surface hazards arising from past coal mining activities, shaft collapses, gas
emissions and vents working closely with Council Planning & Building control
departments.
Also, the Mines Rescue Service based in Rhondda Cynon Taff, provides highly trained
mines rescue teams that are available on a 24-hour basis. Emergency contact details are
held by the Emergency Planning team.
4.4. ENVIRONMENT AGENCY WALES
The Environment Agency Wales has specific responsibilities in the event of flood related
emergencies as well as during a major incident involving chemical, biological, radiological
or nuclear material.
Flooding/ Flood Warning
Issue flood warnings to the public, emergency services, local authorities etc.
Advise on the predicted severity of flood events to aid the decision making
process on incident response.
19
CBRN Incidents:
EA Wales will assist with risk assessment, identify sensitive groundwater and water
courses and advise on locations of decontamination facilities.
The Ambulance Service alerting the LHB, PHW and NHS Trusts of a declared
major incident or standby major incident situation.
If activated, will attend the Outbreak Control Team, with partner agencies.
The LHB has direct responsibility for:
Working with other relevant agencies to assess the impact on health and health
services.
Ensuring that all providers of health care are supported in terms of service
continuity, expenditure, & staff welfare to meet the local population needs.
The Local Health Board will also work in collaboration with the PHW and other partners
to develop and maintain contingency plans for communicable diseases having potential
implications for the wider community, e.g. pandemic influenza.
4.6. MARITIME & COASTGUARD AGENCY
The Maritime and Coastguard Agency is responsible for:
the initiation and co-ordination of civil maritime search and rescue within the UK
search and rescue region,
Discharging HM Governments responsibility to deal with major spillage of oil & other
hazardous substances at sea from ships which threaten UK interests,
Assisting Councils in preparing for and dealing with shoreline pollution from ships.
20
The Maritime and Coastguard Agencys Maritime Rescue Control Centre (MRCC), at
Mumbles, Swansea is responsible for:
Co-ordinated response to all major maritime incidents, including provision and control
of lifeboats & helicopters outlined in the Bristol Channel Plan.
Co-ordination of the Major Incident Liaison Team (MILT) consisting of representatives
of the Emergency Services, Local Authorities and other associated bodies assembled
at MRCC, Swansea.
4.7. MILITARY - Her Majestys Armed Forces
If it is necessary, Local Authorities and the Emergency Services may call upon the Armed
Forces to provide assistance under the rules for Military Aid to the Civil Community
(MACC) set out in Operations in the UK: Defence Contributions to Resilience (interim
Joint Doctrine Publication 02).
In cases of extreme urgency when immediate assistance is required to save human life
all charges for MACC may be waived. In all other cases, the Local Authority making the
request will be billed on a varying scale of charges and indemnity and insurance must be
satisfied before assistance is given.
No Armed Forces assets, manpower, vehicles and stores are earmarked to respond to a
major civil incident. In some cases Armed Forces assistance may come from outside
Wales and the Chepstow peninsula and with any substantial Army involvement, overall
command and control of the Armed Forces aspects of a MACC operation will be
delegated to HQ 160 (Wales) Brigade.
4.9. TELECOMS
British Telecom is responsible for maintaining telecommunications and for the provision
of emergency communications. Normal maintenance is adequately met by existing
routine procedures, but in the event of emergency communications being required, BT
will respond in accordance with their assessment of need.
Additional telephone lines
In an emergency BT are able to provide extra lines and associated equipment.
Temporary payphones are also available but require the movement of specialist
payphone trailers to the identified location. Any requirement should be directed via the
BT National Emergency Link line to the BT Network Operations Unit (NOU) giving clear
details of the problem, requirement and the location where the installation is to be made.
It should also be noted that this process could take a considerable amount of time.
Control of telephone traffic
In a major incident the volume of telephone traffic will increase. To avoid the collapse of
the telephone system BT have extensive capabilities for the rerouting of calls.
In
particularly difficult circumstances BT may reduce volume of calls by invoking the
Government Telephone Preference Scheme (GTPS).
Government Telephone Preference Scheme
BT has an extensive list of telephone numbers of key BCBC personnel, which in the
event of BT limiting access these numbers can still be used.
Mobile telephones / MTPAS
Various departments keep cellular telephones that have been registered with the
Cabinet Office and the network providers as being essential for use during an
emergency. (ICT keep a copy of the master list) These phones will be given priority or, if
necessary exclusive use of the mobile network.
4.10. UTILITY COMPANIES
The utilities, gas electricity, water and telephone companies are Category Two
responders meaning they have a duty to cooperate and share information with other
category one and two responders. These organisations will play a central role in
responding to a major incident, particularly during the recovery phase.
Gas Industry
The primary function of the gas industry (companies such as Transco and Wales & West
Utilities) in a disaster will be the safe control of gas supplies.
Western Power Distribution
The company has a control centre staffed on a 24 hour basis and has emergency teams
available to ensure a rapid response. WPD primary functions include responding to
emergencies on the electricity network, coordinating the restoration of electrical supplies
and provide specialist personnel and equipment.
Welsh Water (Dwr Cymru)
The companys principle functions are the supply and distribution of water and disposal of
sewage. In the event of an emergency affecting mains water supply Welsh Water has a
duty to plan to provide 10 litres of water per person per day of the disruption.
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Faith organisations
The Faith Organisations refer to all denominations in the main religious groups. In the
Christian Churches there are Officers who can provide members to assist BCBCs social
care functions in their responsibilities with regard to post traumatic stress and
bereavement counselling. Other Faith Groups may also be able to provide advice especially where religious traditions require a particular response.
RAYNET (Radio Amateur Emergency Network)
This group is affiliated to the Radio Society of Great Britain. Members are fully trained and
licensed to provide radio communications facilities (voice and data modes) during
emergencies, or properly constituted exercises.
Under the terms of the Amateur (Sound) Licence, they are permitted to handle 3rd party
messages for the BRC, St. John Ambulance Brigade, any UK Police, Fire or Ambulance
Service, Government Departments or Public Utilities. RAYNET are also permitted to
operate Maritime Mobile and to set up unstaffed stations (such as digipeaters.) Under
special permit, staffed talk-through stations may be set up, allowing enhanced
communications in difficult locations e.g. hilly terrain. This is especially useful in the
valley areas in the north of the County Borough. RAYNET can be accessed via the
EPDO.
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Salvation Army
The Salvation Army is able to offer help whenever needed with emergency feeding,
clothing, limited temporary accommodation and welfare duties. These activations are
controlled from Headquarters at Cardiff but are supported by many citadels in parts of the
County Borough.
St John Ambulance Brigade
The Brigade has trained personnel covering the whole of the Borough and receives much
direct support from the medical, nursing and welfare professions. Some teams are able to
provide their own transport; occasionally a converted former ambulance and can offer a
limited amount of equipment. In the main, the functions include;
First Aid and home nursing
Support for the Ambulance Service
WRVS
The WRVS has trained Emergency Service teams within the Bridgend County Borough
area. These volunteers could assist at Rest and Reception Centres, providing welfare
and care for evacuees, staff information points, provide and serve refreshments and assist
with the service of hot meals.
Members will also assist with the registration of evacuees and could set up a clothing
distribution service if so required as current plans rely on BCBC staff to be utilised initially.
4.12. WELSH GOVERNMENT
In the event of a major incident or national emergency the Welsh Government will:
Co-ordinate information and provide appropriate guidance / support to services for
which it is responsible.
Establish an Emergency Co-ordination Centre Wales (ECCW) at its offices in
Cathays Park which can be linked with all agencies, the Office of the Secretary of
State for Wales and Whitehall. (COBR)
Provide representatives to liaise with the Strategic Co-ordinating Group.
(according to the nature of the event) act together with the Office of the Secretary of
State for Wales to represent Wales at the Civil Contingencies Committee and
disseminate information from CCC and Whitehall to relevant agencies via the
Strategic Co-ordinating Groups.
Provide media support through the Communications Directorate.
Provide as appropriate, financial assistance to councils under Section 155 of the
Local Government and Housing Act 1989 (Emergency Financial Assistance Scheme,
formerly the Bellwin Scheme.
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Recovery management arrangements are most effective when they recognise the
complex, dynamic and protracted nature of recovery processes and the changing
needs of affected individuals, families and groups within the community over time.
Recovery is best achieved where the recovery process begins from the moment
the emergency begins or within the early stages of response. It is recommended
that the Recovery Working Group is set up on the first day of the emergency.
Strategy
At the core of the recovery phase is a recovery strategy underpinning all these activities.
It is vital that a clear recovery strategy is developed and agreed at the start of the
recovery process. To be effective, a detailed strategy will need to be developed further
during the response phase of the emergency, in line with BCBCs Recovery Plan.
The recovery strategy could cover some, or all, of the following key objectives:
A Community Impact Assessment (on residents, businesses, infrastructure,
environment, etc) to be carried out as soon as possible and regularly updated.
A concise, balanced, affordable recovery action plan is developed involving all
appropriate agencies and fits the needs of the emergency.
25
Measuring Progress
It is recommended that various targets / milestones for the recovery are established and
agreed. The community should be involved in establishing these targets, which provide
a means of measuring progress with the recovery process, and may assist in deciding
when specific recovery activities can be scaled down.
Suggested targets / milestones could include some of the following:
Demands on public services returned to normal levels (including health)
Utilities are again fully functional
Transport infrastructure is running normally
Local businesses are trading normally
Tourism in the area has been re-established.
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Assistance
Centres
Casualty
Bureau
Body holding
CBRN
COMAH
Command
Control
Cordon
Inner
Cordon
Outer
Crisis
Management
Team
Decontamination
Emergency/
Major
Incident
Emergency
Incident
Control
Forward or
Incident
Control
Point
Friends &
Relatives
Reception
Gold Control
(multiagency)
Local
Resilience
Forum
MACC
Major
Accident
Hazard
Pipelines
Media Centre
MTPAS
Mutual Aid
arrangement
Media Liaison
Officer
Operational
(Bronze)
Control
Recovery
Rest Centre
Survivor
Reception
Centre
Strategic
Coordination
Group
(Police, Fire and Ambulance) Location at the scene from which the
immediate management of the Incident is controlled and coordinated. The central point of contact for all specialist and
Emergency Services engaged on site.
Secure area set aside for use and interview of friends & relatives
arriving due to an incident. The Council may be asked to assist
the Police by providing a Leisure building for their use.
See Strategic Coordination Group
The LRF provides a forum for the co-ordination of all category one
organisations (multi-agency) response to planning for major
emergencies in south wales area.
Military Aid to the Civil Community; the provision of Military
assistance to Councils & Emergency Services in response to a
Major Incident. If offered or there is a threat to life, there is no
charge: thereafter charges will be applicable to the organisation
requesting assistance. To initiate MACC the Chief Executive
must sign an official military indemnity form.
BCBC maintains an emergency plan for Wales and West Utilities
pipelines which covers an emergency incident involving a high
pressure gas pipeline. This is a statutory responsibility.
Central contact point for media enquiries, providing press
conference facilities and communications usually co-ordinated by
the Police as lead agency. Its likely that media officers from all
organisations concerned will utilise such a facility.
Mobile Telecommunications Privileged Access Scheme.
Government controlled scheme which allows certain registered
users preferential access to networks at times of high demand.
Cross-boundary arrangements where Emergency Services,
Councils and other organisations may request extra staff and/or
resources. Requests should be via the Chief Executive.
Person nominated by the Council (other organisations will also
have a similar post) to be responsible for the release of
information to the press and media on behalf of that Council.
All staff working at the scene of the incident are operating at the
operational level. A BCBC manager working at the incident site
would act as the councils Operational Control.
After the initial response to the emergency the Council becomes
the lead agency for the Recovery Phase. BCBC will work with the
communities affected to return to a new state of normality.
A building designated by BCBC to provide temporary shelter and
welfare to residents who have been evacuated from their home.
The Council may be asked to assist the Police by opening a
leisure building for use as a Survivor Reception Centre for
temporary shelter of uninjured persons involved in an incident
where statements can be collected.
The Strategic Coordination Group (formerly referred to as Gold
Control) is a multi-agency group of senior managers from all
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Temporary
Mortuary
Voluntary
Organisation
29
END OF PLAN
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