Emergency plan

Appendix A: Surrey, borough and district mutual aid MOU

Removed due to sensitive contents.

Appendix B: Common operating picture

Removed due to sensitive contents.

Appendix C: Bellwin

Removed due to sensitive contents.

Appendix D: Expenditure pad

Date of spend	Details of expenditure	Cost £: Net	Cost £: VAT	Cost £: Total cost	Purchased by	Authorised by	Dates goods recieved	Justification	How payment was made (cash etc)
-	-	-	-	-	-	-	-	-	-
-	-	-	-	-	-	-	-	-	-
-	-	-	-	-	-	-	-	-	-

Appendix E: Supply of cash to spending officer

Removed due to sensitive contents.

Appendix F: Town Hall and Earlswood Depot Access OOHs

Removed due to sensitive contents.

Appendix G: Handover form

Handover of responsibility for control of an incident response / recovery transferred:

Questions	Answers
To:	Insert answer here
From (For completion by the Commander / Authority in Charge Handing Over):	Insert answer here
Name:	Insert answer here
A representative of:	Insert answer here
a) hereby transfer responsibility for the control of the incident response / recovery to: b) I hereby transfer responsibility for the control of the following part (s) response / recovery (to be specified) to:	Insert answer here
To the Commander / Person in charge of:	Insert answer here
Signed:	Insert answer here
Print name:	Insert answer here
Date and time:	Insert answer here

Internal staff handover

Relief staff should arrive 30 minutes to 1 hour before current staff go off duty so that they can handover properly. Ensure the following tasks are completed with new shift staff.

Questions	Answers
Time they arrived on site:	Insert answer here
Name of your relief:	Insert answer here
Are they properly equipped?	Yes / No
Working mobile phone	Yes / No
Hi-visibility jacket or waistcoat	Yes / No
Wet weather gear, PPE	Yes / No
Situation briefing given by you	Yes / No
Feeding and sanitary arrangements outlined	Yes / No
Has your relief got necessary equipment?	Yes / No
Have they phoned the relevant Manager to advise of arrival, mobile phone number over and when they will take over?	Yes / No
Additional comments:	Insert answer here

Appendix H: IMT agenda

Removed due to sensitive contents.

Appendix I: IMT decision proforma

Reigate & Banstead Borough Council Incident Management Team

Questions	Answers
Title:	Insert answer here
Date:	Insert answer here
BECC (Borough Emergency Coordination Centre) cell:	Insert answer here
Background:	Insert answer here
Recommendations:	Insert answer here
Risks:	Insert answer here
Issues:	Insert answer here
Mitigation:	Insert answer here
Financial implications:	Insert answer here

Appendix J: Decision making in an emergency

Usage of JESIP to support decision making in emergencies

The Joint Emergency Services Interoperability Programme’s (JESIP) models and principles have become the standard for interoperability in the UK. Whilst the initial focus was on improving the response to major incidents, JESIP is scalable, so that the joint working principles and models can be applied to any type of incident.

Therefore, whilst endeavouring to follow the six fundamental key points above, Reigate & Banstead Borough Council’s strategic command level’s Incident Management Team (IMT) are encouraged to follow JESIP’s Joint Decision Model (JDM) (jesip.org.uk) process to guide and support them in decision-making in their responses to emergencies.

Figure: Joint Decision Model cycle

Using the JDM helps to bring together available information, reconcile objectives, and make effective decisions, in both a local and multi-agency response.

It’s use at the IMT, that acts as a forum for Reigate & Banstead Borough Council decision makers, enables for shared situational awareness to be established that is a common understanding of the circumstances, immediate consequences, and implications of the emergency, along with an appreciation of the available capabilities and the priorities.

Achieving shared situational awareness is essential for effective interoperability, particularly in a multiagency context. Establishing shared situational awareness is important for a common understanding at all levels of command.

Decision controls:

As part of the decision-making process, decision makers should use decision controls to ensure that the proposed action is the most appropriate.

A. Why are we doing this?	What goals are linked to this decision? What is the rationale, and is that joinly agreed? Does it support working together, saving lives and reducing harm?
B. What do we think will happen?	What is the likely outcome of the action; in particular what is the impact on the objective and other activities? How will the icident change as a result of these actions, what outcomes do we expect?
C. In light of these considerations, is the benefit proportional to the risk?	Do the benefits of proposed actions justify the risks that would be accepted?
D. Do we have a common understanding and position on:	The situation, it is likely consequences and potential outcomes? The available information, critical uncertainties and key assumptions? Terminology and measures being used by all those involved in the response? Individual agency working practices related to a joint response? Conclusions drawn and communications made?
E. As an individual:	Is the collective decision inline with my professional judgement and experience? Have we (as individuals and as a team) reviewed the decision with critical rigour? Are we (as individuals and as a team) content that this decision is the best practicable solution?

Decision controls support and validate the decision-making process. They encourage reflection and set out a series of points to consider before making a decision. Note that points (a) to (d) are intended to structure a joint consideration of the issues, with (e) suggesting some considerations for individual reflection.

Once the decision makers are satisfied, collectively and individually, that the decision controls validate the proposed actions, then these actions should be implemented. As the JDM is a continuous loop, it is essential that the results of these actions are fed back into the first box – ‘Gather and share information and intelligence’ – which sets out the need to establish and sustain shared situational awareness. This will, in turn, shape any change in direction or risk assessment as the cycle continues.

Command and control structure

There are three tiers of command in responding to an incident and therefore three levels of decision making as laid out below: Operational, Tactical and Strategic. Section 2.1-2.3 detail the types of decisions that should be made at each level and the process it should follow.

It is important to note that there are two main types of emergency incidents, that although do not change the levels of command, influence the way decisions should be made in responding to them, as detailed below. There are rapid onset emergencies and rising tide emergencies.

Figure: Command and control structure internally and at multi-agency level

Type of emergency incidents	Examples
Rapid onset emergency: An emergency which develops quickly and usually with immediate effects, thereby limiting the time available to consider response options.	Flooding Landslides Fire Transport Incidents Evacuations
Rising tide emergency: An event or situation with a lead in time of days, weeks or even months e.g. health pandemic, flooding or pop concert, the final impact of which may not be apparent early on.	Pandemics Events Foot and Mouth Drought Fuel Shortages

Operational Level Command

This is the front-line level of response, often at, or close to, the scene of the incident. They will control and deploy the resources of their respective service within a functional or geographical area and will implement the tactical plan decisions as directed by the tactical commander. Operational level decisions can be taken by staff or managers within a service area. These are largely decisions they are used to making in a BAU role but as per the Council’s emergency arrangements would make use of plans and undertake them in an emergency context. These decisions should be recorded in a personal or operational team logbook locally and updated to the tactical lead and / or cell.

In rapid onset emergencies decisions will be signed off by the Tactical lead of the incident.

In rising tide emergencies decisions are likely to be signed off or made by service managers or line managers.

Example decision: Depot teams deploying sandbags to at risk flood areas.

Tactical Level Command

Tactical command determines priorities, plans and co-ordinates when a task will be undertaken and obtains resources as required. In the first instance Applied Resilience will fulfil the role of Tactical Lead until a Tactical Reigate & Banstead Borough Council Officer Lead can be secured. Tactical Leads should not become involved with the activities at the scene but concentrate on the overall general management whilst being informed by the operational staff at the scene. Tactical command implements the strategy set out by the Strategic Level. This category would also include decisions where there is likely to be substantial public interest.

The Reigate & Banstead Borough Council Incident Liaison Officer (ILO) acts as a key liaison between operational staff at the scene and those in tactical command away from the scene. They will attend briefings at multi-agency tactical meetings, usually near the scene of the incident, and receive up-to-date information on the situation as it unfolds. They will also take requests for Local Authority assistance / involvement to pass on to the Borough Tactical Control. ILOs pass on Borough actions and developments to the Tactical Commander.

In rapid onset emergencies a tactical plan will be made by the tactical lead. Decisions will need to be made quickly. If time allows, a Borough Emergency Coordination Centre will be set up and the BECC (Borough Emergency Coordination Centre) will take over from the Tactical Lead. In addition to personal logs there will be a tactical and IMT decision register log active. The strategic lead on call will be updated of the plans and decisions via phone and by email (IMT@reigate-banstead.gov.uk) in order to challenge or support, however, should not delay time critical responses.

Significant decisions which require strategic sign off or support will be raised to the strategic on call immediately. For example, media statements and large resource deployments not typical to an incident response.

In rising tide emergencies formal structures are likely to be set up either virtually or physically and decisions made as a collective in formal meetings. A Borough Emergency Coordination Centre will be set up and take Tactical Command. A decision register log for those meetings should be kept and will be made up of the relevant Heads of Service. Significant decisions which require strategic sign off will be raised at an IMT meeting in the form of the proforma in appendix A.

Example Decision: To set up a rest centre and where it will be.

2.3 Strategic Level Command

The Incident Management Team (IMT) acts as Reigate & Banstead Borough Council Strategic level command and leads on strategic coordinating and decision-making efforts during emergencies, ensuring that Reigate & Banstead Borough Council is responding effectively and in conjunction with other agencies. Strategic decisions are for the most significant issues. The IMT consists of the Management Team (MT), Communications, appropriate Heads of Service, the Leader of the Council (if appropriate), and anyone else the team deems necessary to assist.

Strategic command may delegate decisions to tactical command. Once IMT is stood up they are likely to make decisions that can terminate or significantly curtail the delivery of critical services that can have an impact on welfare or on the economic wellbeing of the Borough. They may have human rights, legal implications or have substantial financial implications. This is to enable the focusing of necessary attention and resources required of the Council to respond effectively to the emergency at hand. Once IMT is stood down the Council can revert to its usual, pre-emergency decision making structures and processes.

IMT is a Command-and-Control structure used to respond to emergencies and as such does not have decision making authority in its own right but uses existing delegated powers. Constitutionally it is permissible for decisions at the IMT to be made under powers of individual senior officers through the scheme of delegation. The senior officers in the IMT therefore use their existing delegations to make decisions in an emergency according to the Command-and-Control structure. IMT itself if not a decision maker, but a forum in which decisions are made by senior officers based upon their roles, responsibilities, knowledge, and expertise in line with the most up to date information and situational awareness. Therefore, when a decision is made at IMT, it must be attributed to a constitutionally responsible officer and recorded in the IMT decision register log whilst also made according to the decision-making scheme so to ensure of a clearly documented audit trail of governance.

Multi-agency decisions will be made at the Strategic Coordinating Group at the LRF. The LRF has no legal powers and organisations take responsibility for any decisions and actions taken. Decisions will need to be discussed and recorded internally. If actions/decisions are taken against the collective the rationale needs to be recorded.

In rapid onset emergencies this is likely to be just one Director on call who will make time critical decisions on behalf of the Council. If more than one Director is available an IMT can be called but should not be at the expense of time critical decisions. The Leaders and other Members should be updated of plans and decisions via phone and by email in order to challenge or support; however, this should not delay the decision-making process.

In rising tide emergencies an IMT will be formed of the Directors and the Leader. It requires a quorum of at least two IMT decision-makers to make a decision and these should be formally minuted and added to the IMT decision register log. Requests for decisions from services will be brought as a proforma.

Example Decision: To stop a service and redeploy staff into the response.

The decision making proforma (see Appendix H) is a request brought via a paper and comprises background detail and recommendations alongside key risks and issues taken into consideration, how to mitigate these and the financial implications. These make up the key ingredients towards making strategic decisions that would be considered and scrutinised at IMT before their potential implementation by an attributed senior officer.

Logging and recording of decisions

The necessity of recording decisions made in a response to an emergency incident upholds accountability and the following of important protocols during a critical time. Logging and recording of decisions are important to inform debriefing, inquiries and helps to identify lessons for future learning. When decision makers make decisions, they are responsible for recording those decisions in their incident logbook. Any decisions, including the rationale behind them, should be recorded in this log. All staff should have a personal logbook in such instances where decisions are not being recorded formally such as in a formal meeting with dedicated loggists.

A number of trained loggists are available to support with logging in emergency incidents. Their contact details are included on the Council’s emergency contacts list.

Where decision makers work together and make joint decisions on a multi-agency level, they are responsible for recording those decisions additionally in a joint decision log. This should include the time and date the entries were made.

Recording of decisions at strategic level - IMT

Strategic decisions made or ratified in IMT meetings must be formally recorded in meeting minutes by dedicated loggists. These need to be recorded in the IMT decision register log with the time and date, the rationale and considerations behind decisions, including risks and any other implications. Furthermore, when a decision is made at IMT, it must be attributed to a constitutionally responsible officer and recorded in the IMT decision log made according to the decision making proforma so to ensure of a clearly documented audit trail of governance.

Framework for how decisions are tracked and logged:

Level command	Rapid onset emergencies	Rising tide emergencies
Operational	Logbook	BAU Head of Service or Director approval
Tactical	Logbook or BECC (Borough Emergency Coordination Centre) cell meeting minutes (if held)	BECC (Borough Emergency Coordination Centre)/ Cell Meeting Minutes/ Emails/ Key decision logs.
Strategic	Logbook and IMT Decision register Log and meeting minutes (if IMT held)	IMT Meeting Decision register Log with issues escalated through Decision proforma.

Appendix J - Joint doctrine supporting document

Joint decision log - example template

Decision log number	Decision - Date and time of decision
1. Identify situation and gather information What is your understanding of what has happened? What do we know so far? What might happen?	Insert answer here
2. Assess threats and risks Do I need to take action immediately? Do I need to seek more information? Where can I get it from? What could go wrong?	Insert answer here
3. Policies and procedure Which ones have I taken into account	Insert answer here
4. Options and considerations What options are open to me? Consider immediacy of any risk/threat, limits of information etc.?	Insert answer here
5. Decision and rationale Decision controls- why are we doing this? What do we think will happen? Do we have a common understanding and position on; Situation Available information Terminology Working practices Conclusions Is the benefit proportional to the risk?	Insert answer here
6. Review of decision - time and result	Insert answer here
Names of people making decision	Insert answer here
Name of person recording decision	Insert answer here

Appendix K - Everbridge notification system

Removed due to sensitive contents.

Appendix L - UK emergency alerts

Emergency Alerts is the UK Government service that will warns the public if there’s a danger to life nearby. In an emergency, a mobile phone or tablet will receive an alert with advice about how to stay safe. Emergency Alerts will be sent for:

• Severe flooding
• Fires
• Extreme weather
• (It has been advised that the alerts may be used for other emergencies in future)

Emergency Alerts will only be sent by:

• the emergency services
• government departments, agencies and public bodies that deal with emergencies

It has been advised that the alerts may be used for other emergencies.

More information can be found on the UK Government’s website: About emergency alerts - GOV.UK (www.gov.uk)

Appendix M - Glossary

ACCOLC – Access Overload Control

The Access Overload Control Scheme gives call preference to registered essential users on the four main mobile networks in the UK if the scheme is invoked during a major emergency.

BECC – Borough Emergency Coordination Centre

The Borough Emergency Centre (BECC) is where the Borough’s Tactical Control Team may be located. During a major incident, it may be more efficient to bring together key staff who are able to respond to requests from Multi Agency Tactical Lead. Representatives at TCG should be in a position to task down to Operational Staff in their area. The Tactical Control Team selected will be based on the nature of the incident.

Bellwin Scheme

Discretionary scheme for providing central government financial assistance in exceptional circumstances to affected local authorities in the event of a major emergency.

Operational Command (Bronze)

At the front line of any major incident, there are operational levels of command known as Operational Teams. This is the level at which the management of ‘hands-on’ work is undertaken at the incident site(s) or associated areas.

CCC - Civil Contingencies Committee

Civil Contingencies Committee (CCC) of Ministers (chaired normally by the Home Secretary) convened to provide central government oversight of a major emergency.

CCS - Civil Contingencies Secretariat

The Cabinet Office secretariat which provides the central focus for the cross-departmental and cross-agency commitment, co-ordination and co-operation that will enable the UK to deal effectively with disruptive challenges and crises.

COMAH sites

Industrial sites which are subject to the Control of Major Accident Hazards Regulations.

Command

The authority for an agency to direct the actions of its own resources (both personnel and equipment).

Co-ordination

The harmonious integration of the expertise of all the agencies involved with the object of effectively and efficiently brining the incident to a successful conclusion.

Control

The authority to direct strategic and tactical operations in order to complete an assigned function and includes the ability to direct the activities of other agencies engaged in the completion of that function. The control of the assigned function also carries with it a responsibility for the health and safety of those involved.

DEFRA – Department of Environment, Food and Rural Affairs

Government department responsible for the countryside; the environment and the rural economy. A significant part of Defra’s work is concerned with preparedness for emergencies and contingencies, which fall within the remit of environment, food and rural affairs.

DH – Department of Health

Government Department of Health.

Family and Friends Reception Centre

Secure area set-aside for reception and interview of relatives and friends arriving at the scene. Established by the police in consultation with the local authority

Strategic (Gold)

Strategic is the senior emergency control team responsible for agreeing the policy and strategic direction of response to a major incident. Strategic is made up of senior representatives from the emergency services, local authorities, other SLRF organisations and co-opted specialists

ILO - Incident Liaison Officer

A local Authority Officer who provides a direct link between the local Authority and the Tactical Coordinating group.

Incident Management Team (IMT)

Reigate & Banstead Borough Council’s over all emergency management team, made up of Directors and Strategic Heads plus additional officers where necessary, the IMT oversee and set the strategic direction for the response, as well as manage contact with any Strategic Coordination Centre.

LGD - Lead Government Department

Department which, in the event of a major emergency, co-ordinates central government activity.

Major Emergency

Any event or circumstance (happening with or without warning) that causes or threatens death or injury and disruption to the community. Or damage to property or to the environment on such a scale that it cannot be dealt with by the emergency services, local authorities and other organisations as part of their normal day-to-day activities.

Media Centre/Media Briefing Centre

Central location for media enquiries, providing communication, conference and monitoring facilities, interview and briefing, access to responding organisation personnel and staffed by spokespersons from all the principal services/organisations responding.

Mutual Aid Arrangements

Cross-boundary arrangements under which emergency services, local authorities and other organisations request extra staff and/or equipment for use in a disaster.

OGD – Other Government Departments

Other Government departments that may be involved in any major incident.

RAYNET

Radio Amateurs Emergency Network.

RVP - Rendezvous Point

Point to which all resources arriving at the outer cordon are directed for logging, briefing, equipment issue and deployment. In protracted large-scale incidents, there may be a need for more than one rendezvous point.

Rest Centre

Building designated by the local authority for the temporary accommodation of evacuees, with overnight facilities if necessary.

SCC

Surrey County Council.

TCG/ TCC

Where there is one scene, such as a train crash, there is a Tactical Coordinating centre (TCC) which hosts the Tactical Coordinating Group (TCG). Where there is more than one scene, such as flooding, there could be a number of Tactical teams. Tactical Teams decides on the hour-by-hour priorities in planning, allocating resources and coordinating when tasks are to be undertaken. TCC has a similar representation to that of Strategic.

SLRF - Surrey Local Resilience Forum

The Surrey Local Resilience Forum (SLRF) organisations respond to a major incident under the guidance of the Strategic Coordinating Group (known as Strategic).

Temporary Mortuary

Facilities accessible from a disaster area designated for temporary use as a mortuary and adapted for postmortem examinations to take place.

Utilities

Companies providing essential services e.g. gas, water, electricity, telephones.

VexDD – Vetinary Exotic Disease Division

DEFRA division responsible for monitoring and handling Exotic diseases.