Wellington Earthquake National Initial Response Plan - Supporting Plan SP 02/10 28 April, 2010. Version 1.0
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Wellington Earthquake National
Initial Response Plan
Supporting Plan [SP 02/10]
28 April, 2010. Version 1.0
Resilient New Zealand
Aotearoa Manahau
Wellington Earthquake National Initial Response Plan
ISBN: 978-0-478-36801-7
28 April 2010
Version 1.0
Authority
This plan has been issued by the Director, Civil Defence Emergency Management
pursuant to s9(2) of the Civil Defence Emergency Management (CDEM) Act 2002. It provides assistance
to CDEM Groups in the development of agency response plans.
The Ministry of Civil Defence & Emergency Management consulted with CDEM Groups, government agencies
and lifeline utilities in producing this plan.
Published by the Ministry of Civil Defence & Emergency Management.
This document is not copyright and may be reproduced with acknowledgement. This document, together with
further information about MCDEM, is available at www.civildefence.govt.nz
Ministry of Civil Defence & Emergency Management
PO Box 5010
Wellington
New Zealand
Tel: +64 4 473 7363
Fax: +64 4 473 7369
Email: emergency.management@dia.govt.nz
www.civildefence.govt.nz
Wellington earthquake national initial response plan 28 April 2010, version 1.0 1Contents
Foreword ............................................................................................................................... 3
Section 1: Introduction....................................................................................................... 4
Section 2: Operational environment ................................................................................ 7
Geographical features.................................................................................................. 7
Future threat assessment............................................................................................ 9
Section 3: National response actions............................................................................. 10
Mission and strategic priorities.................................................................................. 10
Implementation........................................................................................................... 10
Specific response tasks (not including standard agency response tasks).............13
Coordination Measures..............................................................................................19
Section 4: Logistics........................................................................................................... 21
Section 5: Control and communications........................................................................25
Appendix 1: Communications Procedures.....................................................................26
Establishing Communications – All Agencies...........................................................26
Communications Links...............................................................................................26
Response Agency Emergency Contact Details . .......................................................26
Appendix 2: National response maps.............................................................................. 27
Appendix 3: Logistics arrangements...............................................................................30
Logistics System..........................................................................................................30
Daily Logistics Requirements (Predicted)..................................................................32
Appendix 4: National response matrix............................................................................33
Appendix 5: Information requirements...........................................................................38
Appendix 6: Response timeline.......................................................................................40
Appendix 7: Key public messages................................................................................... 41
Key Public Messages Set 1: Government remains in Wellington............................ 41
Key Public Messages Set 2: Government relocates from Wellington......................43
Appendix 8: Domestic resource requirements...............................................................45
Appendix 8: Domestic resource requirements...............................................................46
Appendix 9: International resource requirements......................................................... 47
Appendix 10: Glossary.......................................................................................................48
2 Wellington earthquake national initial response plan 28 April 2010, version 1.0Foreword
A major earthquake in the Wellington region is one of the
worst scenarios for a natural hazard disaster that could be
faced by New Zealand. This is due in part to Wellington’s
population density, it being the seat of government, its economic
importance and its role as a key transport hub.
New Zealand’s geographic and meteorological profile invokes
many potential emergency scenarios that would necessitate a
nationally co-ordinated civil defence emergency management
response. But the impact of a major earthquake in the
Wellington region is likely to disrupt communications and
infrastructure and could severely restrict the ability of authorities
to coordinate and control the national response. In most other
New Zealand scenarios, the ability of authorities to coordinate and control the response
would remain largely intact.
In the event of a major earthquake in Wellington, staff could become casualties or find
themselves isolated from their place of work and needing to care for family and loved
ones. Facilities could be damaged or unsafe and the supporting infrastructure could
be out of commission for extended periods. In addition, there would be great public,
political and media interest in the emergency. The response by civil defence emergency
management at all levels must be immediate and closely coordinated.
The plan provided in this document has been created to show the concept of
operations on which the response to the impact of a major Wellington earthquake is to
be based. It also shows agreed roles and responsibilities for agencies participating in
the response. The plan ensures that the national level response is co-ordinated, can be
activated immediately and automatically without the need for specific direction, and is
as effective and as efficient as possible within the constraints of resources likely to be
available at the time.
The plan is issued under the authority of the Director of Civil Defence Emergency
Management and the provisions of Section 9 of the Civil Defence Emergency
Management Act 2002. The plan has been developed in conjunction with government
departments and agencies, local government, CDEM Groups and lifeline utilities. It is
the foundation for the national response as well as regional and local CDEM response
plans. The plan will not be static. It will be reviewed periodically and adjusted to
take into account changes in the understanding of the threat, its likely impacts and
developments in communities and practices.
Planning is a critical component of preparedness and preparing for major emergencies
is a continuous responsibility of all.
John Hamilton
Director of Civil Defence Emergency Management
July 2010
Wellington earthquake national initial response plan 28 April 2010, version 1.0 3Section 1: Introduction
1. Plan purpose
The purpose of this Initial Response Plan is to direct and coordinate the immediate
national response to a major Wellington earthquake until a formal response structure
and specific National Action Plan has been established. A ‘major’ earthquake is defined
as one that is either Magnitude 7 or greater, or where the impact is sufficient to lead
the National Controller to activate this plan.
2. Timeframe
This Initial Response Plan covers the first 3-5 days following a major Wellington
earthquake. This will give the National Crisis Management Centre (NCMC) time to
activate, gather information and develop a follow-on National Action Plan based on the
specifics of the event. The National Action Plan will coordinate the ongoing response,
and will supplant this Initial Response Plan.
3. Plan activation
This plan may be activated following a major earthquake in the Wellington region.
Activation will depend on the magnitude, location and impact of the earthquake, and
will occur in one of the following ways:
a. By decision: This plan may be activated on the decision of the National
Controller. Activation will be communicated via the National Warning
System (likely in the event of a moderate range of impacts, leaving some
communications intact), or
b. By default: Following a major earthquake in the Wellington region, agencies are
to follow the communications procedure in Appendix 1. Initially, agencies are to
attempt to make contact with their own offices in Wellington. If this is impossible
or communications into Wellington are unworkable, agencies are to assume
activation of this plan. Once it is operational, the NCMC will confirm the plan’s
activation.
4. Audience
This Initial Response Plan is intended for the following users:
a. the NCMC
b. Central Government agencies involved in the response
c. Civil Defence Emergency Management (CDEM) Groups
d. Crown-owned entities
e. Lifeline Utilities, and
f. Non-government agencies involved in the national-level response.
While the information contained in this document may be useful to other users (such
as local authorities), it is set at a national level, and does not directly address the
response actions to be followed by those users.
5. Responsibilities
Agencies with responsibilities under this plan are listed in Section 3, under ‘Specific
Response Tasks’.
This plan is reliant on response agencies developing their own plans and procedures
4 Wellington earthquake national initial response plan 28 April 2010, version 1.0for a major Wellington earthquake. It aims to coordinate the immediate actions of
responding agencies; not to detail them. Therefore, it is vital that all agencies tasked
with actions under this plan have plans and/or procedures in place to ensure that they
can carry out their assigned tasks.
6. Context
This Initial Response Plan fits within the context of the Civil Defence Emergency
Management Act 2002 (CDEM Act) and National Civil Defence Emergency
Management Plan 2005 (CDEM Plan), for an earthquake that has damaging impacts
on Wellington. Wellington City holds a strategic position with respect to government,
commerce, transport nodes, lifeline utilities and its population. As the seat of
government, a major emergency in the region of Wellington will attract considerable
national and international interest.
This Initial Response Plan is a supporting plan to the National CDEM Plan and Guide. It
is designed to operate within the framework and structures described in the National
CDEM Plan and Guide. Following a major Wellington earthquake, this Initial Response
Plan will be activated to control the first 3-5 days of the response. It will be superseded
by a National Action Plan, which will be developed after the response situation has
been clarified by the NCMC. The National Action Plan will detail the response actions
to be undertaken for the period until a transition to a National Recovery Action Plan is
possible. National and Regional agencies will be able to use this Initial Response Plan
to develop their own plans before and following a major Wellington earthquake. Local
agencies should in turn use their Regional response plan to develop their own. This is
shown in the diagram below:
NATIONAL CDEM PLAN FRAMEWORK
WELLINGTON WELLINGTON WELLINGTON
EARTHQUAKE NATIONAL EARTHQUAKE NATIONAL EARTHQUAKE NATIONAL
INITIAL RESPONSE PLAN ACTION PLAN RECOVERY ACTION PLAN
NATIONAL AGENCY
RESPONSE PLANS
CDEM GROUP
RESPONSE PLANS
LOCAL
RESPONSE PLANS
Wellington earthquake national initial response plan 28 April 2010, version 1.0 57. Assumptions
The following assumptions have been made in the development of this plan:
a. The NCMC is functional The NCMC will be functioning during the initial
response, either in its primary location in Wellington, or the alternate site in
Auckland.
b. Responding agencies are functional Responding agencies will be activated,
either in their primary locations (Wellington) or in alternate locations (likely
Auckland).
c. Communications are functional All responding agencies will be able to
communicate, though likely to be in a much-reduced capacity.
d. Wellington is isolated Large parts of the Wellington region will be isolated by
road (specifically, Wellington City, the Hutt Valley, Porirua and possibly Kapiti).
e. Other areas are isolated Marlborough, Kaikoura and Nelson-Tasman may also
be isolated by road.
f. Wellington transport modes are damaged Wellington airport and port are
damaged, and may be inoperable for an extended period (days to weeks).
g. National Assembly Areas (Air) are operable Ohakea, Paraparaumu and
Masterton airfields will be damaged or disrupted, but can subsequently be used
by aircraft with minimal repair effort.
h. Automatic mass evacuation does not takes place There will not be an
automatic evacuation of a large part of the general population from the affected
area. Any evacuation that does occur will be conducted after a full assessment
of the situation, and planned for accordingly. Therefore, such an action will be
covered by the National Action Plan. Critical casualties, essential government
personnel and tourists will however be evacuated as part of the initial response.
i. Rail is inoperable The rail network in the affected area will be largely unusable
during the 3-5 day period covered by this initial response plan.
These assumptions will need to be verified as part of the initial response. Where
an assumption is shown to be incorrect (i.e. some agencies are non-functional, or
communications links are down), this Initial Response Plan will need to be adapted,
and/or provision made in the National Action Plan.
8. Review
This plan will be reviewed from January 2013 and at three yearly intervals after that.
MCDEM will lead the review and will consult with all agencies with responsibilities
under this plan.
6 Wellington earthquake national initial response plan 28 April 2010, version 1.0Section 2: Operational environment
geographical features
9. Geographic boundaries
This Initial Response Plan encompasses all of New Zealand, but with particular
reference to the Manawatu-Wanganui, Hawke’s Bay, Wellington, Nelson-Tasman,
Marlborough and Canterbury CDEM Groups. A National Response Map displaying the
affected area1 is included at Appendix 2.
10. Key transport features
Key transport features in this plan are:
a. State Highway (SH) 1, between Bulls and Wellington, and between Picton and
Amberley
b. SH2, between Napier and Wellington
c. SH3, between Palmerston North and Woodville (Manawatu Gorge)
d. SH6, between Blenheim and Nelson, and between Nelson and Murchison
e. New Plymouth Port
f. Napier Port
g. Wellington Port and harbour
h. Picton Port
i. Nelson Port
j. Ohakea Airbase
k. Palmerston North Airport
l. Napier Airport
m. Wellington Airport
n. Nelson Airport
o. Blenheim Airport
p. Auckland Airport
q. Christchurch Airport
r. Paraparaumu Aerodrome, and
s. Masterton Aerodrome.
A map highlighting these transport features is included at Appendix 2.
11. Population
A population breakdown by local authority is included under Logistics Arrangements in
Appendix 3.
12. Lifeline utilities/infrastructure
The planning scenario that this plan is based on is a worst-case scenario, and it is
likely that the impacts of a major Wellington earthquake will be less than those stated
below.2 Key infrastructure impacted by a Wellington earthquake may include:
1 Refer to the Glossary on page 46 for definition of ‘affected area’ used in this plan.
2 This case scenario is available on the Publications page of the MCDEM website, www.civildefence.govt.nz.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 7Health and disability sector
a. All health care facilities in the Capital and Coast, Hutt Valley and Wairarapa DHBs
are likely to be damaged and operating at a severely reduced capacity. This
includes tertiary hospitals as well as primary care facilities and capability such
as clinics, doctors surgeries and ambulance providers.
b. Health care facilities in the Wanganui, MidCentral, Hawke’s Bay and Nelson-
Marlborough DHBs may be damaged and/or disrupted, and operating at a
reduced capacity.
Roads
c. Major slips, bridge damage and closures are likely on SH1, between Bulls and
Wellington, and between Picton and the Hurunui District.
d. Major slips, bridge damage and closures are likely on SH2, between Waipukurau
and Wellington.
e. Major slips and closures are very likely on SH3, in the Manawatu Gorge.
f. There may be major slips, bridge damage and closures on SH6, between Nelson
and Blenheim, and between Nelson and Murchison (Buller Gorge).
g. Damage is likely on local road networks between Bulls and the Hurunui District.
Ports and airports
h. Wellington Port is highly likely to be inoperable.
i. Wellington Airport is highly likely to be inoperable.
j. Palmerston North, Ohakea, Paraparaumu, Masterton and Blenheim airports will
potentially be damaged or disrupted.
Lifeline utilities
k. Wellington regional water and wastewater distribution networks are highly likely
to be severely disrupted or destroyed.
l. Water/wastewater systems across the rest of the affected area may be disrupted
or damaged.
m. Electrical generation and distribution networks are likely to be inoperable or
degraded between Palmerston North and the Hurunui District.
n. Telecommunications networks are likely to be inoperable, overloaded or
degraded, between Palmerston North and the Hurunui District.
o. Fast Moving Consumer Goods (FMCG) distribution system into the Wellington
region will be inoperable, due to road closures.
p. FMCG distribution system into the Nelson, Tasman and Marlborough regions may
be inoperable, due to road closures.
q. Fuel distribution system into the Wellington and Marlborough regions is likely to
be inoperable.
r. Fuel distribution system into the Manawatu-Wanganui, Nelson and Tasman
regions will potentially be disrupted.
s. Gas transmission pipelines supplying the lower North Island are likely to be
damaged, isolated and either inoperable or degraded.
t. Rail lines between Wellington and Levin, Wellington and Masterton, Palmerston
North and Woodville and Kaikoura and Picton are likely to be inoperable. National
control of rail operations may also be severely disrupted, due to damage to
ONTRACK communication and signalling facilities in Wellington.
8 Wellington earthquake national initial response plan 28 April 2010, version 1.0Future Threat Assessment
13. Aftershocks
Moderate to strong aftershocks will continue throughout the affected area, and may do
so for several months. These may be up to MM6-73 in intensity. Aftershocks are likely
to cause further landslides on unstable slopes, affecting construction and clearance
operations and posing a hazard to unstable buildings. In addition, there is a continued
risk of tsunami caused by aftershocks and/or submarine landslides.
14. Severe weather
Depending on the time of year, there is a moderate to high chance of severe weather
over the affected area during the initial response. Severe weather is likely to increase
the number of sick and injured, and to hamper initial response activity. The effects on
people in emergency and temporary accommodation will include increased sickness
rates and a lowering of morale. Response activities such as clearance operations,
air supply and beach landing operations could be adversely affected and slowed.
Landslides on unstable slopes, the formation of debris dams and flooding will present
additional hazards to an already dangerous situation.
Rainfall may also be beneficial in areas with damaged water distribution networks.
Public information should include advice on storing rainfall, to lessen the burden on
water providers.
15. Water/wastewater
In the long term, lack of potable water and poor sanitation is likely to be a hazard for
many people in the Manawatu-Wanganui, Wellington and Marlborough Regions for at
least six months following the event. In addition lack of water/wastewater will severely
impact lifeline utilities and facilities and reduce their effective operation. Effective
public health surveillance will be necessary to mitigate the risk of a higher incidence of
disease.
16. Housing
Once the initial concern over earthquake casualties has passed, the main focus is
likely to be on the large numbers of people in the affected area still in emergency or
temporary accommodation. While this will be addressed below the national level of the
initial response, actions taken in the first few days may become the norm for months
to come. This is certain to be a critical area of concern in the medium to long term of a
response and recovery programme.
3 MM stands for ‘Modified Mercalli’, which is a measure of how strongly an earthquake manifests at the surface. See the the Glossary
on page 46 for a complete definition.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 9Section 3: National response actions
Mission and strategic priorities
17. Mission statement
To direct and coordinate the initial national response to a major Wellington earthquake,
in order to minimise loss of life, care for those in distress and provide for continuity of
government.
18. Strategic goal and priorities
The strategic goal for the initial response is:
“To swiftly alleviate the suffering of the people in the area affected by the
earthquake.”
The national response priorities are:
a. To preserve life and care for the injured, sick and dependent people
b. To provide access to the affected area
c. To provide essential services of shelter, water, food and healthcare to people in
the affected areas
d. To maintain law and order
e. To prevent further casualties from related hazards, and
f. To preserve governance.
While this plan emphasises Wellington as the worst affected area, national support will
be prioritised by need, rather than region.
Implementation
19. Response outline
The NCMC, responding agencies and CDEM Groups will automatically activate their
usual or alternate response coordination facilities in accordance with their own plans
and procedures, without waiting for central direction. The degree of success in this
response will depend on the rapidity with which response agencies carry out their
assigned tasks. In the likely event that communications are degraded, response
agencies will need to use their initiative and judgement. Response agencies should
actively seek alternate means to communicate with others (where necessary) until
normal communications methods can be restored.
The critical elements of the initial response will be:
a. Information gathering Determining the status of key infrastructure, capabilities
of response agencies and the numbers and locations of injured and displaced as
soon as possible to allow for the development of a National Action Plan.
b. Mobilisation and logistics Establishment of a transport and logistics system
to provide resources to response operations, and enable access to and from
isolated areas.4 Direct support to the affected area is to be provided from
National Assembly Areas by air (likely Ohakea and/or Palmerston North for fixed
wing aircraft, Paraparaumu, Masterton and/or Nelson for helicopters) and by sea
(likely from Auckland, Napier, New Plymouth or Christchurch).
4 Refer to the Glossary on page 46 for definition of ‘isolated areas’ used in this plan.
10 Wellington earthquake national initial response plan 28 April 2010, version 1.0c. Public information Establishment of an all-of-government communications
group to ensure the timely transmission of information to the public, both
domestic and international.
d. International assistance Establishment of an NCMC International Assistance
Cell to oversee the coordination of international assistance.
e. Urban Search and Rescue (USAR) Coordination of (USAR) operations.
f. Critical services Restoration of services as rapidly as possible in the worst
affected areas.
The Response Matrix in Appendix 4 details response actions by function and region.
20. Key tasks
a. Information gathering Carry out reconnaissance along key routes, location
and numbers of casualties and displaced people, key infrastructure status and
resource shortfalls. Appendix 5 contains a detailed breakdown of information
requirements.
b. Healthcare Provide appropriate primary care, including pre-hospital emergency
care, tertiary and public health services within the affected area.
c. Access into/out of isolated areas Begin repair operations to reopen roads.
Establish air and sea transport links, to bypass blocked roads.
d. Provision of shelter, water, food and healthcare Quantify numbers and
locations of people requiring food, water, shelter and healthcare, procure the
means to alleviate these and establish a transport/distribution network to supply
them.
e. Public information Provide timely and comprehensive information to the public
and media.
f. Rescue and firefighting Rescue trapped and isolated people, and extinguish
fires as rapidly as possible.
g. Movement control Prevent movement of unauthorised people and traffic into
the affected area to prevent added burden on response resources.
h. Communications Establish a communications plan (i.e. satphone, radio, courier)
to bypass disrupted landline and cellular networks.
21. Phases
There are two broad phases for this plan, which hinge on the level of coordination at
the national level. The two phases are:
a. Phase 1: Immediate actions Agencies are to immediately begin carrying out
their allocated tasks without waiting for NCMC direction. This phase may last
from minutes to up to 24 hours, depending on the disruption to the NCMC staff
and facilities (including the alternative NCMC). Where necessary, agencies and
CDEM Groups are to coordinate activities jointly until the NCMC fully activates.
b. Phase 2: Follow on This phase begins when the NCMC has activated, and runs
through to the development and promulgation of a National Action Plan. The
NCMC will begin to coordinate response actions based on this Initial Response
Plan.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 1122. Decision points
a. Declare state of national emergency The declaration of a state of national
emergency will depend on the initial impact assessment. This is the decision
of the Minister of Civil Defence, on the advice of the National Controller and/or
Director of Civil Defence Emergency Management.
b. Seek international assistance This will depend on the initial impact assessment
and the range and quantity of resources available to the national response. This
is a Cabinet-level decision, taken on advice from the National Controller, Director
of Civil Defence Emergency Management and other agencies.
c. Location of the NCMC in Wellington or Auckland This will depend on the
ability to communicate with response agencies and whether the Wellington site
can support the required level of operation. This decision will be made by the
National Controller and/or Director of Civil Defence Emergency Management.
d. Decision to relocate Government This is outside the scope of this plan.
23. NCMC activation mode
The NCMC/Alternate NCMC will automatically move to Mode 3 upon activation of this
plan. A change from this mode may be made after an initial review of the situation.
Therefore, CDEM Groups are in control of the response within their regions, supported
by the NCMC.
24. State of National Emergency
A declaration of a state of national emergency is likely to follow after an initial
assessment. In this instance, overall control will revert to the NCMC. The NCMC will
move to Mode 4 following the declaration. This is likely to occur within the first 48
hours of the response depending on the scale of the impact.
25. Outcome
The National Initial Response Plan provides for an immediate response. This plan
will be superseded when a National Action Plan has been developed, and can be
implemented. Ideally, the following activities will either have been completed or be well
underway when the National Action Plan is initiated:
a. A full awareness of the extent and range of impacts is established, and
communicated across all agencies.
b. Rescue operations are established within the affected area.
c. Appropriate care to casualties and the sick within the affected area is being
provided. Medical evacuation is underway from the affected areas, where
required.
d. Effective public and primary health care within the affected area is being
provided.
e. Public information is being coordinated and delivered accurately and rapidly.
f. A system for the provision of food, water and shelter in the affected areas is
established and operating effectively.
g. Fires are under control or extinguished.
h. Government is operating effectively.
i. Reliable communications into and within affected areas has been established.
j. Infrastructure critical to the response is being repaired.
12 Wellington earthquake national initial response plan 28 April 2010, version 1.0Specific Response Tasks (not including standard agency response tasks)
26. NCMC
a. Establish contact with CDEM Groups and other Emergency Operations Centres
(EOCs) (see Appendix 1).
b. Establish contact with national lifelines Sector Coordinating Entities (SCEs) (see
Appendix 1).
c. Support patient evacuation from affected areas, in conjunction with the Ministry
of Health’s National Health Coordination Centre (NHCC).
d. Support other evacuations from affected areas (including essential government
personnel).
e. Support the provision of effective public health response and disease monitoring
in the affected area, in conjunction with the Ministry of Health.
f. Consolidate personnel, equipment and supply requests from CDEM Groups and
other agencies.
g. On activation of this plan, begin immediate procurement of response resources,
including fast-moving consumer goods (FMCG) and fuel, (see Section 4 and
Appendices 8 and 9).
h. Develop priority for transport assets (ship, fixed wing, helicopter) until these are
released for general use, and oversee transport taskings.
i. Procure commercial logistics providers to control ship loading and tasking at
National Assembly Areas (Sea).
j. Confirm location of National Assembly Areas (Air).
k. Confirm the assumptions listed in Section 1 of this Initial Response Plan.
l. Develop the National Action Plan.
m. Manage and direct the use of international assistance.
n. Direct Red Cross to establish the National Inquiry Centre.
27. Manawatu-Wanganui CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix
1).
b. Support evacuation of patients and casualty transport by local DHBs and
ambulance providers.
c. Provide the NCMC with consolidated number of casualties and displaced in the
Manawatu-Wanganui Region (see Appendix 5).
d. Provide the NCMC with the status of lifelines and key infrastructure in the
Manawatu-Wanganui Region (see Appendix 5).
e. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
f. Support operations to reopen Ohakea airfield and Palmerston North airport if
required.
g. Support roading authority operations to reopen critical routes from Wanganui-
Palmerston North, Palmerston North-Hastings, Woodville-Masterton and
Waiouru-Otaki.
h. Inform the NCMC of CDEM Group Staging Areas.
i. Support NZDF supply operations at Ohakea and/or Palmerston North Airport if
required.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 1328. Hawke’s Bay CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix 1).
b. Support evacuation of patients and casualty transport by local DHBs and
ambulance providers.
c. Provide the NCMC with consolidated numbers of casualties and displaced in the
Hawke’s Bay Region (see Appendix 5).
d. Provide the NCMC with the status of lifelines and key infrastructure in the
Hawke’s Bay Region (see Appendix 5).
e. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
f. Inform the NCMC of CDEM Group Staging Areas.
g. Support roading authority operations to reopen the Napier-Woodville route (to
regional boundary).
29. Wellington CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix 1).
b. Support evacuation of patients and casualty transport by local DHBs and
ambulance providers.
c. Coordinate evacuation of other evacuees with the NCMC.
d. Provide the NCMC with consolidated numbers of casualties and displaced in the
Wellington region (see Appendix 5).
e. Provide the NCMC with the status of lifelines and key infrastructure in the
Wellington region (see Appendix 5).
f. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
g. Support operations to reopen Wellington port and airport.
h. Assist fuel companies to establish an improvised bulk fuel facility in Wellington
port (if required).
i. Determine beach landing sites for NZ Defence Force (NZDF) reconnaissance (if
required).
j. Survey Wellington Harbour in conjunction with the NZDF.
k. Inform the NCMC of CDEM Group Staging Areas.
l. Support roading authority operations to reopen the Wellington-Porirua, Porirua-
Hutt Valley, Featherston-Woodville routes, and critical routes within urban areas
such as access to tertiary hospitals and Wellington Airport.
30. Marlborough CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix 1).
b. Support evacuation of patients and casualty transport with the local DHB and
ambulance providers.
c. Provide the NCMC with consolidated numbers of casualties and displaced in the
Marlborough Region (see Appendix 5).
d. Provide the NCMC with status of lifelines and key infrastructure in the
Marlborough Region (see Appendix 5).
e. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
f. Support operations to reopen Blenheim airport and Koromiko Airfield if required.
14 Wellington earthquake national initial response plan 28 April 2010, version 1.0g. Determine beach landing sites for NZDF reconnaissance. (if required).
h. Inform the NCMC of CDEM Group Staging Areas.
i. Support roading authority operations to reopen routes Picton-Kaikoura and
Blenheim-Nelson.
31. Nelson-Tasman CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix 1).
b. Support evacuation of patients and casualty transport with the local DHB and
ambulance providers.
c. Provide the NCMC with consolidated numbers of casualties and displaced in the
Nelson-Tasman Region (see Appendix 5).
d. Provide the NCMC with the status of lifelines and key infrastructure in the
Nelson-Tasman Region (see Appendix 5).
e. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
f. Inform the NCMC of CDEM Group Staging Areas.
g. Support roading authority operations to reopen routes Nelson-Springs Junction,
Nelson-Westport and Blenheim- Nelson.
32. Canterbury CDEM Group
a. Establish contact with the NCMC and neighbouring CDEM Groups (see Appendix 1).
b. Support evacuation of patients and casualty transport with the local DHB and
ambulance providers.
c. Provide the NCMC with consolidated numbers of casualties and displaced in the
Canterbury Region (see Appendix 5).
d. Provide the NCMC with the status of lifelines and key infrastructure in the
Canterbury Region (see Appendix 5).
e. Provide the NCMC with consolidated and prioritised personnel, equipment and
supply requests, including forecasts.
f. Support roading authority operations to reopen routes from Christchurch-
Blenheim and Springs Junction- Nelson.
g. Assist the NCMC to establish a National Assembly Area (Sea) in Lyttelton, if required.
h. Support international Reception and Departure Centre (RDC) management at
Christchurch Airport if required.
i. Be prepared to provide personnel and equipment to assist other affected CDEM
Groups.
33. Auckland CDEM Group
a. Establish contact with the NCMC and other CDEM Groups (see Appendix 1).
b. Assist the NCMC to establish a National Assembly Area (Sea) in Auckland.
c. Support international Reception and Departure Centre (RDC) management at
Auckland Airport if required.
d. Be prepared to provide personnel and equipment to augment the alternate NCMC
operations in Auckland.
e. Be prepared to provide personnel and equipment to assist affected CDEM
Groups.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 1534. All other CDEM Groups.
a. Be prepared to provide personnel and equipment to assist affected CDEM Groups.
b. Be prepared to assist the NCMC with local procurement of equipment and
supplies, and its onward movement to the affected area.
35. New Zealand Defence Force (NZDF)
a. Establish contact with the NCMC (see Appendix 1).
b. On activation of this plan, establish an National Assembly Area (Air) at Ohakea or
designated alternate site.
c. On activation of this plan, establish an National Assembly Area (Helo) at
Paraparaumu or designated alternate site. Be prepared to establish a secondary
National Assembly Area (Helo) in Nelson for South Island operations.
d. Control air asset loading and tasking at National Assembly Areas (Air), in
accordance with the NCMC priority.
e. On activation of this plan, make available to the NCMC all logistics management
and all air, sea and rough-terrain transport capabilities.
f. On activation of this plan, conduct aerial reconnaissance of key infrastructure, as
listed in Appendix 5. Liaise with Auckland NZTA office to carry road engineers.
g. Be prepared to assist sea asset loading and tasking in the National Assembly
Area in Auckland, in accordance with NCMC priority.
h. Be prepared to establish and control Beach Landing Sites in the affected area, in
conjunction with the local CDEM Group, in accordance with the NCMC tasking.
i. In conjunction with Wellington Harbourmaster, survey Wellington Harbour, if
required.
j. Be prepared to provide personnel and equipment to augment CDEM Group,
particularly field logistics units comprising transport and supply functions.
k. If possible, be prepared to provide personnel to augment the NCMC’s operations
on request (likely if an alternate NCMC in Auckland is activated).
36. Ministry of Health
a. Establish contact with the NCMC (see Appendix 1).
b. Identify available capacity across the Health sector and (in conjunction with the
NCMC) coordinate any transport requirements for the provision of personnel,
equipment and supplies to the affected area.
c. Control medical transport assets outside of isolated areas.
d. Liaise with the NCMC to arrange medical evacuation out of isolated areas.
e. Coordinate the provision of additional medical teams to the affected area.
f. Control any international medical assets deployed to New Zealand.
37. District Health Boards (within the affected area)
a. Establish contact with the NHCC (see Appendix 1).
b. Coordinate the local primary, tertiary and public health response.
c. Determine the numbers of patients requiring evacuation (including support staff
and equipment), prioritise them, and send this list to NHCC to arrange transport.
d. Move patients to designated evacuation assembly areas (if required) with any
relevant documentation.
16 Wellington earthquake national initial response plan 28 April 2010, version 1.0e. Forward consolidated non-medical support requests to CDEM Groups for action,
including requests for supplies, equipment, engineering, lifeline utilities and
transport. Medical personnel and supply/equipment requests should be directed
to the NHCC.
38. District Health Boards (outside the affected area)
a. Establish contact with the NHCC (see Appendix 1).
b. Provide situation reporting, status, and capacity to support the Health sector
response to the NHCC.
39. Ambulance providers
a. Establish contact with the NHCC at a national level (see Appendix 1).
b. Respond in accordance with the provisions of AMPLANZ.
c. Establish contact with the local DHB EOC within the affected area.
40. New Zealand Police
a. Establish contact with the NCMC (see Appendix 1).
b. Ensure the safety of the Governor-General, Chief Justice and Prime Minister, and
advise the NCMC.
c. Forward consolidated, prioritised lists of personnel, supplies and equipment
requiring transport into and from the affected areas, to the NCMC.
d. Prevent public movement into the affected area; boundaries to be determined by
the NCMC in conjunction with Police.
e. If possible, be prepared to provide personnel to augment the alternate NCMC
operations on request in Auckland if it is activated.
41. New Zealand Fire Service
a. Establish contact with the NCMC (see Appendix 1).
b. Coordinate Fire and Rescue response to affected areas.
c. Activate Major Incident Plans.
d. Forward consolidated, prioritised lists of personnel, supplies and equipment
requiring transport into the affected areas, to the NCMC.
e. Coordinate USAR operations.
f. If possible, be prepared to provide personnel to augment the NCMC’s operations
on request (likely if alternate NCMC in Auckland is activated).
42. National Welfare Coordination Group (NWCG)
a. Establish contact with the NCMC (see Appendix 1).
b. Assist the NCMC in its procurement of welfare support equipment, supplies and
personnel.
c. Activate the 0800 Government Helpline.
d. Support the development of a temporary welfare plan (i.e. accommodation,
psychological support etc.) in conjunction with NCMC.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 17e. In order to allow NWCG agencies to function in the affected area, forward
consolidated and prioritised lists of personnel, supplies and equipment requiring
transport, to the NCMC.
f. Advise NCMC of the impacts on vulnerable communities in the affected area.
43. Transport Response Team (TRT)
a. Establish contact with the NCMC (see Appendix 1).
b. Advise the NCMC of the status of key airfields and airports, including restoration
times (see Appendix 5).
c. Advise the NCMC of the status of state highways, including restoration times,
particularly for SH1 vs SH2 (North Island) and SH1 vs SH6/63 (South Island)
(see Appendix 5).
d. Advise the NCMC of the status of key ports, including restoration times (see
Appendix 5).
e. Advise the NCMC of the national rail network status, particularly from the
Waikato Region south.
f. Provide advice to assist the NCMC procurement of private sector transport
assets, particularly medium and heavy lift helos and barges.
g. Alert the appropriate transport agency (CAA first, then NRCC) of the need to
issue Notices to Airmen (NOTAM) advising restrictions to air movement within the
affected area.
h. Alert the appropriate transport agency of the need to issue Notices to Mariners
advising changes to the maritime environment within the affected area.
i. Alert the appropriate transport agency of the need to amend licensing or to grant
exemptions from selected road rules and regulations, if requested by the NCMC
(with particular regard to driver hours and vehicle weights).
44. New Zealand Transport Agency
a. Liaise with NZDF, primarily Air Force, to determine if road engineers from
Auckland can accompany RNZAF reconnaissance flights.
b. Liaise with NZDF and Wellington CDEM Group, to determine feasibility of early
landing of heavy equipment across the beaches, prior to port reopening.
45. Earthquake Commission (EQC)
a. Generate Minerva simulation scenarios, and deliver to the NCMC as required.
46. NZAID
a. Support NCMC logistics procurement.
47. National lifeline utilities
a. Establish contact with the NCMC via Sector Coordinating Entities (see Appendix
1).
b. Advise the NCMC of individual response plans and priority of effort.
c. Advise the NCMC of support requirements.
18 Wellington earthquake national initial response plan 28 April 2010, version 1.048. Transpower New Zealand Ltd
a. Provide a liaison officer to the NCMC.
b. Liaise with NCMC to gain access to air reconnaissance flights.
49. Gas Association of New Zealand (GANZ)
a. Provide a liaison officer to the NCMC.
Coordination Measures
50. Response matrix
A response matrix is contained in Appendix 4. It details response activities by function
and by region, and expands on the information in this section.
51. Timings
There are no fixed times for any of the response activities outlined. Tasks must begin
on day one and be completed as rapidly as possible. The ability to do so will depend on
the event’s impacts, the time it occurs and the state of communications. An estimated
timeline of actions is included in Appendix 6.
52. Locations
A National Response Map is included in Appendix 2, detailing all locations relevant to
the national response.
a. Road Road repair operations will be managed by the NZTA in conjunction with
local roading authorities. Key locations will be advised following activation of this
plan.
b. Sea assembly areas Shipping operations will be based out of Auckland and
Christchurch initially. North Island shipments may move to Napier, if a shorter
travel time becomes necessary (New Plymouth is also a possible alternate port).
South Island shipments may move to Nelson or Picton, once road access has
been reopened and port facilities repaired. Wellington and Marlborough CDEM
Groups will advise the NCMC of where beach landing sites are required.
c. Fixed wing assembly areas These will be confirmed once an initial damage
assessment has been conducted. This is likely to be at Ohakea, with supporting
operations at Palmerston North. If Ohakea and Palmerston North are unusable,
these will shift to either Auckland or Napier.
d. Helicopter assembly areas These will be confirmed once an initial damage
assessment has been conducted. These are likely to be at Paraparaumu,
Masterton and/or Nelson. Locations will be dependent on the ability to move
freight by road and sea to the National Assembly Areas.
53. Public information
Key public messages are contained in Appendix 7. The NCMC will issue media
statements through the National Warning System as soon as possible once the NCMC
has been activated.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 1954. Preparatory measures for recovery
Preparatory measures for recovery will be included in the National Action Plan, but fall
outside the scope of this plan.
20 Wellington earthquake national initial response plan 28 April 2010, version 1.0Section 4: Logistics
55. Supply and transport
A multi-organisational logistics structure must be established in order to procure,
manage and transport the required personnel, equipment and supplies. This is detailed
in Appendix 3. Scarce transport assets will be controlled by the NCMC until there is no
longer a transport shortfall, in which case assets will be released for general use.
Road
a. NZTA and local authorities will conduct road reconnaissance of their respective
routes, and begin repairs in order to allow road access to all affected areas as
soon as possible.
b. Road transport is as per normal commercial arrangements outside of areas
isolated by road. Within areas isolated by road, CDEM Groups are to coordinate
road transport if required.
c. NZDF has some light and medium rough-terrain transport vehicles available for
use by CDEM Groups. These can be requested through the NCMC to support
regional and local operations.
Sea
a. The NCMC is responsible for the procurement of ships to transport heavy freight
and equipment into isolated areas where ports are useable.
b. NCMC, in conjunction with TRT, will procure ships capable of landing freight
across boat ramps and beaches, to transport supplies and equipment into
isolated areas where ports are unusable. This is likely to have limited capacity.
c. CDEM Groups, in conjunction with NZDF, will identify locations where they will
require beach landing sites to be established. NZDF will establish and control
beach landing sites. NCMC will determine priority of effort, and where NZDF
assets will be allocated.
d. Loading and tasking of ships will be managed by commercial logistics
companies, in accordance with priorities set by the NCMC.
Air
a. Reopening airfields in isolated areas (particularly Wellington, Nelson,
Marlborough and Kaikoura) is a critical task.
b. The NCMC (in conjunction with NZDF) will procure aircraft, particularly medium
and heavy lift helos. These will then be assigned either to the National Assembly
Areas or to CDEM Groups in the affected area.
c. Air asset loading and tasking for national-level air operations will be controlled
by the NZDF at the designated National Assembly Areas for both fixed wing and
helicopters.
d. Medical evacuation will be coordinated by the NHCC. Air transport out of isolated
areas will be arranged by the NCMC, at the request of the NHCC.
e. CDEM Groups are to control air landing zones in their areas.
f. CDEM Groups and national agencies can request the use of air assets through
the NCMC.
g. Air Traffic Control over the affected area will continue to be provided by Airways
Corporation of New Zealand. Aircraft operating away from controlled airfields will
operate according to Civil Aviation Rules and Visual Flight Rules (VFR).
Wellington earthquake national initial response plan 28 April 2010, version 1.0 21Procurement
The NCMC will move immediately to procure critical resources as soon as this plan
is activated. These will be sourced domestically and internationally. Indicative lists of
what may be procured are listed at Appendix 8 (Domestic Resource Requirements) and
Appendix 9 (International Resource Requirements). Resources that are procured will be
made available to responding agencies either directly (i.e. by allocation) or indirectly (to
fulfil requests, with central control retained by the NCMC).
56. Movement priority
In order to maximise the use of limited transport assets, the following priority is to be
used for transport into and out of isolated areas during the initial response:
Inwards (in priority order)
a. Medical supplies, equipment and personnel.
b. Urban Search and Rescue.
c. CDEM personnel (to coordinate the regional and local response).
d. Welfare supplies (water, food, shelter).
e. Fire-fighting supplies, equipment and personnel.
f. All other requests.
Outwards (in priority order)
a. Casualties with immediately life-threatening injuries (Status 1).
b. Personnel critical to the functioning of government and management of the
response.
c. Casualties with potentially life threatening injuries (Status 2).
d. Couriers with response-specific information.
e. All other requests (including tourists and other non-residents).
57. Critical resources
Certain resources are deemed critical to the response, and will therefore be controlled
by the NCMC. These may be requested from the NCMC, and may be allocated to
agencies and CDEM Groups permanently or on a temporary basis, with a fixed time
limit. As the situation improves, and capacity increases, resources will no longer be
deemed critical, and will be made available as a general resource. Critical resources
include:
a. Medium and heavy lift helicopters
b. Barges and other vessels with a beach landing capability
c. Water purification, distribution and storage equipment
d. Mobile communications (particularly satellite digital capable)
e. Fuel tankers, particularly aviation fuel (for transport to National Assembly Areas),
f. Generators (all types)
g. Emergency accommodation (e.g. tents, bedding)
h. Earthmoving plant, and
i. Mobile cranes.
22 Wellington earthquake national initial response plan 28 April 2010, version 1.058. Welfare
The national welfare response is coordinated by the NWCG. CDEM Groups and Welfare
Advisory Groups (WAGs) requiring support are to request this through the NCMC.
The NCMC will work with NWCG to fulfil these requests. The NCMC will coordinate
and control the transport of equipment, supplies and staff into isolated areas, in
conjunction with the NWCG.
59. Water
The NCMC will oversee the procurement of water purification and distribution
equipment from domestic and international sources. This will take time to procure and
will be transported on a priority basis to affected areas as it is procured.
60. Health/medical
The national medical response will be coordinated from the NHCC. Procurement of
medical supplies, equipment and staff will be managed by the NHCC, and transport
into isolated areas will be arranged by the NCMC. Non-medical support is requested
through local CDEM Groups, who may coordinate this support through the NCMC if
required. Patient evacuation is to be arranged between DHBs and the NHCC, with the
NCMC providing transport where required.
61. Lifeline utilities
Lifeline utilities have inherent capacity, and have developed their own plans to restore
service to affected areas. Any support needed, particularly transport, is to be requested
initially from CDEM Groups, who may request additional support from the NCMC. It is likely
that because of access issues, lifeline utilities may focus on the Manawatu-Wanganui,
Hawke’s Bay, Nelson, Tasman and Canterbury regions during the initial response. Lifeline
utility priorities will be confirmed or modified in the National Action Plan.
62. Finance
There are no financial barriers to justified response activities. After the initial response
has been completed, a financial control system will be established to cover response
costs, including retrospectively. Financial support will be provided to CDEM Groups as
per the provisions of Part 10 of the National CDEM Plan.
63. International assistance
All offers of international assistance are to be directed to the International Assistance
Cell at the NCMC. A pre-determined list of international assistance needed for this
response is listed at Appendix 9.
Reception and Departure Centres (RDCs) may be established at Auckland (and
possibly at Christchurch) airports, to coordinate relief assets arriving from international
providers. If established, RDCs will be operated by UN Disaster Assessment and
Coordination teams, with support from the local CDEM Group. UN assistance will
require DESC5 approval prior to deployment, and will work at the direction of the NCMC
once activated.
5 Domestic and External Security Coordination, a Cabinet Committee. Refer to the Glossary on page 46 for a full definition.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 2364. Donations and volunteers
General donations are to be discouraged via public information statements. Specific
needs must be conveyed in replies to enquiries or via public information statements.
Volunteers will be encouraged to affiliate with existing organisations (those already
responding). See Appendix 7 for the key messages concerning donations and
volunteers.
24 Wellington earthquake national initial response plan 28 April 2010, version 1.0Section 5: Control and Communications
65. Control arrangements
The structure for control will be as per the arrangements detailed in the National CDEM
Plan. The main difference in this situation is that these arrangements are likely to be
disrupted by a major Wellington earthquake. Therefore the following adaptations may
be made:
a. NCMC location The NCMC will be located in the Beehive, Wellington or at its
alternative site in Auckland, depending on the operability of the Wellington
site. This will be advised via the National Warning System. Agencies that would
normally be represented in the NCMC are requested to provide staff to the
alternate NCMC if this is activated.
b. Activation of alternate NCMC Following a major Wellington earthquake, if the
MCDEM Auckland staff are unable to contact the National Controller, Director or
the NCMC (Wellington) within two hours, they will activate the alternate NCMC in
Auckland. This will include the appointment of an alternate National Controller.
c. NCMC inactive Following a major Wellington earthquake, the NCMC may
initially be inactive, depending on the disruption to the NCMC staff and facilities
(including the alternative NCMC). Agencies are to operate as tasked in this plan,
and to continue to attempt to contact both the main and alternative NCMC.
Where necessary, agencies and CDEM Groups are to coordinate activities jointly
until the NCMC activates. When the NCMC does activate, it will broadcast this via
the National Warning System.
d. Agency EOCs Other government agencies may also shift responsibility or
relocate to regional offices (most likely Auckland). These must be advised to the
NCMC as soon as possible.
e. Replacement EOCs Agencies that are unable to operate must inform the
NCMC of their status. If this is impossible, the NCMC will assume an agency is
inoperable after 24 hours without contact. If considered necessary, the NCMC
will gain DESC authorisation to form a replacement EOC from available staff
drawn from appropriate agencies, to perform this function.
f. National Controller’s tele-conferences These will be held twice daily, at 0930
and 1630. All affected CDEM Groups, NWCG, NHCC, TRT, Police, Fire and NZDF
are to phone in if not represented in the NCMC (including by satphone). The
number will be provided via the National Warning System.
66. Communications
a. Response agency emergency contact details A list of telephone, email,
satphone and radio contacts of agencies with responsibilities under this plan
has been created by MCDEM. This will be made available to these agencies and
will be updated as required.
b. NCMC communications The NCMC in Wellington will likely only be able to
communicate via satellite phone, HF radio and courier only. The alternate NCMC
(in Auckland) will have access to email, landline and cellphones.
c. Communications failure In the event that national-level communications
channels in Wellington fail completely, the NCMC will likely relocate to
the alternate site in Auckland. All agencies must provide for alternative
communications prior to the emergency. The NCMC will seek to procure
additional communications capacity following activation of this plan, but delivery
of any additional capacity will likely be delayed past the initial response phase.
d. Communications arrangements are detailed in Appendix 1.
Wellington earthquake national initial response plan 28 April 2010, version 1.0 25You can also read
