A NATIONAL EMERGENCY MANAGEMENT STRATEGY FOR REMOTE INDIGENOUS COMMUNITIES

K E E P I N G S A F E A NATIONAL EMERGENCY MANAGEMENT STRATEGY FOR REMOTE INDIGENOUS COMMUNITIES

Attorney-General s Department Emergency Management Australia PO Box 1020 Dickson ACT 2602 Australia EMA Canberra EMA Mount Macedon Telephone +61 (0) 2 6256 4600 Telephone +61 (0) 3 5421 5100 Facsimile +61 (0) 2 6256 4653 Facsimile +61 (0) 3 5421 5272 Email Website ema@ema.gov.au www.ema.gov.au Commonwealth of Australia 2007 ISBN 978-1-921152-10-8

Keeping Our Mob Safe A NATIONAL EMERGENCY MANAGEMENT STRATEGY FOR REMOTE INDIGENOUS COMMUNITIES 1

Australian Government In collaboration with New South Wales Government

The development of the National Emergency Management Strategy for Remote Indigenous Communities was initiated by the Australian Emergency Management Committee (AEMC) in 2004, and the completed Strategy has been endorsed by the Augmented Australasian Police Ministers Council (now renamed the Ministerial Council for Police and Emergency Management or MCPEM). The Strategy addresses recommendations made in the Council of Australian Governments directed review Natural Disasters in Australia: Reforming mitigation, relief and recovery arrangements (2002) and aims to improve the disaster resilience of remote Indigenous communities. The Strategy was developed by the Remote Indigenous Communities Advisory Committee (RICAC), a sub-committee of AEMC, with funding provided through the Australian Government s Working Together to Manage Emergencies Program. RICAC is chaired by the Director General, Department of Emergency Services Queensland and membership includes both emergency management and Indigenous representation from: New South Wales Northern Territory Queensland South Australia; and Western Australia The Australian Government was represented on RICAC by the Attorney-General s Department through Emergency Management Australia (EMA) and the Department of Families, Community Services and Indigenous Affairs through the Office of Indigenous Policy Coordination. EMA provided secretariat support to the committee. RICAC gratefully acknowledges the work of Vision Network Pty Ltd in consulting with stakeholders and drafting of the Strategy. In particular, RICAC acknowledges the contribution made by Indigenous communities and agencies and emergency management agencies in RICAC member states and territories to the development of the strategy. 3

Contents EXECUTIVE SUMMARY 6 1. INTRODUCTION 8 1.1 Development of the strategy 8 1.2 Objectives 8 1.3 Remote Indigenous communities 8 1.4 Consultations 10 1.5 Emergency management issues 12 2. BACKGROUND 14 2.1 Emergency management responsibilities 14 2.2 Identification of the needs of remote Indigenous communities 15 3. VISION, AIM AND PRINCIPLES 16 3.1 Vision 16 3.2 Aim 16 3.3 Principles 16 4. PRIORITIES 17 4.1 Priority 1 Decision-making structures in remote Indigenous communities for emergency management 18 4.2 Priority 2 Communication and engagement with remote Indigenous communities in emergency management 19 4.3 Priority 3 Community emergency management planning for remote Indigenous communities 20 4.4 Priority 4 Community resourcing for emergency management in remote Indigenous communities 22 4.5 Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities 23 4.6 Priority 6 Empowering Indigenous people through emergency management training 25 4.7 Priority 7 Education of Indigenous people 27 4

5. REPORTING ON PROGRESS AND ACHIEVEMENTS 29 5.1 Agency responsibilities 29 5.2 Reporting 29 5.3 Timing 29 ANNEX A SUMMARY COMMENTS FROM CONSULTATIONS.30 Priority 1 Decision-making structures in remote Indigenous communities for emergency management 30 Priority 2 Communication and engagement with remote Indigenous communities in emergency management 30 Priority 3 Community emergency management planning for remote Indigenous communities 30 Priority 4 Community resourcing for emergency management in remote Indigenous communities 31 Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities 32 Priority 6 Empowering Indigenous people through emergency management training 32 Priority 7 Education of Indigenous people 33 SHORTENED FORMS 34 GLOSSARY 35 BIBLIOGRAPHY 36 5

Executive Summary Keeping our mob safe: National emergency management strategy for remote Indigenous communities is a response to an identified need for a practical approach by government at the local, State/Territory and national levels, and by Indigenous communities to address the community emergency management priorities of remote Indigenous communities. Importantly, the strategy also takes into account the broader community safety priorities and needs of remote Indigenous communities, as related to emergency management. Issues raised by Indigenous peoples through a thorough consultation process have been addressed by this strategy where possible. This process involved extensive community discussions across three States and two Territories. Because Indigenous people s issues are interrelated, particularly from a holistic community standpoint, it is difficult to separate out emergency management concerns per se. However, this focus has been attempted, with broader concerns being considered at times, to better retain the spirit of consensus achieved through community consultation. The strategy intends to provide a strategic direction for emergency management and a framework for a coordinated and cooperative approach to risk assessment, decision-making and resource allocation. Its stated focus on preparedness and prevention also enables government to address deficiencies effectively in remote Indigenous communities before they face emergencies. Because some of these emergencies regularly occur in Australia due to the pattern of natural hazards (for example, tropical cyclones, flooding and bushfires), it is imperative that government fulfils its mandate to protect all citizens in a meaningful and timely manner. 6

The development of effective partnerships between remote Indigenous communities and emergency management-related agencies is the key to the success of this strategy. Building the capacity within and between agencies to support and assist Indigenous communities is a necessary first step. Beyond this, a host of priorities require attention, including encouraging communities to build their own capacities for emergency management through enhanced communication and engagement with agencies; better community decision-making; improved resource agreements with partner agencies; more targeted training for community members and emergency management providers; real employment opportunities for Indigenous peoples (including voluntary work); and community education to raise awareness and prepare for emergencies. The National emergency management strategy for remote Indigenous communities incorporates the following priorities: Priority 1 Decision-making structures in remote Indigenous communities for emergency management Priority 2 Communication and engagement with remote Indigenous communities on emergency management Priority 3 Community emergency management planning for remote Indigenous communities Priority 4 Community resourcing for emergency management in remote Indigenous communities Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities Priority 6 Empowering Indigenous people through emergency management training. Priority 7 Education of Indigenous people. 7

1. Introduction 1.1 Development of the strategy The development of the National emergency management strategy for remote Indigenous communities was endorsed by the Augmented Australasian Police Ministers Council (A/APMC). This follows increased recognition by government since 2000 that the issues relating to emergency management in remote Indigenous communities need to be addressed. The strategy has been developed by the Remote Indigenous Communities Advisory Committee (RICAC), which was established by Emergency Management Australia and endorsed by the Australian Emergency Management Committee (AEMC), which is the peak body responsible for managing national strategic emergency management issues and policies and reporting to relevant ministers. This project has been funded through the Australian Government Attorney- General s Department Working Together to Manage Emergencies funding. 1.2 Objectives The objectives of the strategy are to: Develop knowledge and skills in Indigenous people and organisations to enhance emergency management in remote communities. Improve the level and appropriateness of emergency management-related services in the area of prevention, preparedness, response and recovery provided by relevant agencies in remote Indigenous communities. Build the capacity of remote Indigenous communities to improve community safety through sustainable emergency management. Increase government commitment and accountability to address issues impacting on effective emergency management in remote Indigenous communities. Promote effective partnerships between emergency management agencies, Indigenous organisations, government and other agencies to improve community safety outcomes for remote Indigenous communities. 1.3 Remote Indigenous communities Remote Indigenous communities are defined by some or all, but are not limited to, the following characteristics, which present complex emergency management risks and challenges: entrenched levels of disadvantage geographical isolation lack of services or infrastructure lack of access to services restricted or limited accessibility vulnerability and exposure to hazards low economic base, and unique cultural or communication issues. 8

Remote Indigenous communities in Australia have diverse and complex emergency management needs. The complexities are often a result of isolation, vulnerability and exposure to natural hazards, inadequate services and infrastructure, transient populations, accessibility issues and entrenched levels of disadvantage. Different governance structures and statutory arrangements and distinctive languages and customs in communities add to the complexities of developing a national approach to emergency management. The map below shows discrete Indigenous communities and remoteness areas across Australia. The communities have been classified through the Australian Standard Geographical Classification Remoteness Structure 2001. (Reference: Housing and Infrastructure in Aboriginal and Torres Strait Islander Communities, Australia, Australian Bureau of Statistics 2001.) ABS data used with permission from the Australian Bureau of Statistics. 9

1.4 Consultations Consultations on issues relating to emergency management in remote Indigenous communities were conducted around Australia in July and August 2005 with representatives of remote Indigenous communities, key organisations and government agencies. An analysis of feedback from the consultations provided information in the following areas: key themes relating to emergency management emergencies in remote communities, and key emergency management issues in remote Indigenous communities. Key themes relating to emergency management Consultations indicated some key themes relating to emergency management in remote Indigenous communities. These key themes and related feedback have been incorporated into the strategy priorities and the goals and actions to implement and achieve the priorities. They are: commitment and accountability communication consultation coordination decision-making diversity education employment funding governance provision of services partnerships and agreements, and training. Emergencies in remote Indigenous communities Emergencies mean different things to different people. Emergency is defined in many jurisdictions as an event requiring a significant, coordinated response. Nobody would deny that a cyclone impact is an emergency, but many emergency management organisations do not regard individual incidents as emergencies, arguing that they are resolved routinely. At the level of a remote community, however, incidents such as a single vehicle road crash or a schoolyard fight can require a significant coordinated response for that community. The concept of emergency, and by inference emergency management, must be viewed in context. Given the extremely limited capability and capacity of remote Indigenous communities, a broad concept of emergency is needed. Consultations indicated that remote Indigenous communities across Australia face emergencies generated by vastly different risks, based on their locations and seasonal factors. For example, communities in the northern parts of Australia are at risk from cyclonic winds, floods and storm surges caused 10

by cyclones and flooding monsoonal rains in the wet season (November to March), plus bushfires in the dry season (March to November). Communities in the southern parts of Australia are at risk of floods caused by winter rains (July to August), storms and cyclones (often originating in other states) and bushfires (November to March). All communities faced risks from humangenerated hazards as well. The impact of these hazards on remote Indigenous communities is often greater than other communities because of their geographical and social remoteness. As a result, the risk represented by these hazards can be substantial in remote Indigenous communities. The following potential hazards were identified by Indigenous people living in remote communities across Australia. Natural hazards cyclones, storms and destructive winds floods drought dust storms earthquakes and tremors extreme temperatures and weather tsunami (tidal wave) and sea surge bushfire insect plagues Human-caused hazards accidents (for example, vehicle, plane crashes, industrial, farming) environmental accidents (for example, chemical and hazardous materials) poisoning (for example, spraying, baiting, water contamination) environmental hazards (for example, asbestos) fire (for example, house, building, vehicle) loss of essential services (for example, electricity failure, water shortage, gas leaks) collapse of infrastructure drowning land and sea rescue lost or missing persons space debris terrorism Socioeconomic hazards civil unrest, feuding, disruptive events social situations (for example, excessive substance abuse/misuse, domestic violence, suicide) disease or infection epidemic (for example, rota virus) 11

Key emergency management issues in remote Indigenous communities Consultations identified the emergency management needs and priorities of Indigenous people living in remote locations. During consultation, representatives of remote Indigenous communities indicated that when emergencies occur or there is a high likelihood of their occurrence, communities often discover the limitations of their capacity and ability to respond to and recover from an emergency and its long-term effects. It is also at this time that the inadequacies and/or inappropriateness of the information and/or services provided by government agencies and service providers are highlighted. 1.5 Emergency management issues The following emergency management issues, clustered under four broad themes, were highlighted by representatives of remote Indigenous communities during the consultations. Cultural appropriateness Remote Indigenous communities are diverse and need to be recognised as such in the provision of emergency services and emergency management strategies and processes. For example, there is a range of differences in locations and groups between Aboriginal people and Torres Strait Islanders, and between island and mainland communities. Social situations such as excessive substance abuse/misuse, domestic violence, suicide, pandemictype diseases, mental illness, poverty and theft are considered emergency situations in many remote Indigenous communities. For emergencies, the general focus of the community and emergency management personnel is on the response and recovery processes in the short term, which rarely takes into consideration the cultural orientations and traditions of remote Indigenous groups and the consequences of mainstream recovery processes (for example, the consequences of prolonged evacuation or evacuation to culturally inappropriate locations). The recovery process for emergencies in remote Indigenous communities needs to take into account and provide appropriate services (for example, counselling services) for the emotional trauma experienced by Indigenous people in relation to emergencies and their effects on individuals, families and communities. Indigenous people recommend that all personnel involved in emergency management for their community should undertake cultural-awareness training and develop understanding of cultural protocols to enhance relationships with the community. 12

Effective engagement Remote Indigenous communities on the mainland include homelands and outstations, which are generally linked to larger communities and have continuous relationships with them. These homelands and outstations need to be considered when planning and implementing emergency management for remote Indigenous communities. Planning and development of remote community infrastructure and operations requires a holistic approach that takes into account legislative requirements and provision of services for sustainable emergency management. Planning needs to involve Indigenous decision-making structures in communities and the participation of Indigenous people at all levels of emergency management. Overall, limited attention is given to the prevention and preparation processes and longer-term recovery process. This means that the total emergency management process and the prevention, preparedness, response and recovery (PPRR) approach is not comprehensively and clearly understood by key Indigenous community leaders, nor generally understood by the community. Complacency can develop, and actions taken in emergencies are reactive not proactive. Indigenous Community Councils need to be presented with information on the roles and responsibilities of government agencies and service providers, and how these relate to emergency management for communities and to the provision of relevant services and allowances to the community, individuals and families. A collaborative approach Indigenous people who are long-time residents of their communities know the people, relationship systems and the day-to-day operations of their communities and feel that they need to be involved in the long-term coordination and organisation of emergency management for their communities. Indigenous people feel that they have local and traditional knowledge and experience that must be respected and recognised by non-indigenous people involved in emergency management for their communities. This knowledge must be used in training and preparing for employment in the emergency services sector. More effective responses are generated where there is a combination of Indigenous involvement and responsibility, a Community Emergency Management and/or Disaster Plan, and a State Emergency Service (SES) controller or someone in the community with organisational experience of emergencies. Emergency management training can be included as part of governance training for Indigenous corporations and organisations, and emergency services can be considered as part of discussions and negotiations for shared responsibility agreements. 13

2. Background Empowering individuals and communities Indigenous people in SES roles generally feel disempowered in relation to emergency management situations in their communities. They are usually volunteers or Community Development Employment Program (CDEP) workers without appropriate authority and adequate training, and they feel unable to be involved in their own right to contribute more effectively to the safety and health of their communities through sustainable emergency management. Indigenous communities need awareness and education programs for all aspects of emergencies. Local emergency management training, including risk management, is needed for CDEP workers and community residents, including service providers for the community. Indigenous people should be encouraged to participate and be involved in the development and delivery of education and training programs in emergency management. Community members of CDEPs, Community Councils and service providers, and other residents identified by the community, should undertake this training. In delivering on its seven priorities, this strategy aims to address the above emergency management issues highlighted by community members during consultations. 2.1 Emergency management responsibilities State governments are responsible for many regulatory arrangements essential for emergency management. Some service provision is devolved or delegated by the States and Territories to local governments. There is also significant participation by volunteers and volunteer groups, particularly in remote communities where community safety needs are a high priority. A wide range of organisations provides emergencyrelated services to Australian communities. They include: ambulance services emergency services family and community services health services local governments metropolitan and rural fire services police, and the Royal Flying Doctor Service. Specific roles and responsibilities may vary in different jurisdictions. Many of these organisations are also responsible for prevention or mitigation and recovery activities in their jurisdictions, which often require considerable financial commitment. In some States and Territories local governments have significant responsibilities in determining the framework for community safety. It is important to note that different 14

governing structures for remote Indigenous communities exist across jurisdictions and some communities are not located within local government areas. Access to adequate essential services remains an issue for Indigenous people living in remote locations, where responsibility for the provision of services may be unresolved. 2.2 Identification of the needs of remote Indigenous communities The needs of Indigenous communities have received increased recognition by the emergency management sector in recent years. The 2000 Australian National Audit Office report on Commonwealth emergency management arrangements raised the needs of Indigenous communities as an important priority. In 2002, this situation was considered a key issue in the Council of Australian Governments (COAG) Review of natural disaster relief and mitigation arrangements. The review was carried out by a high-level group of officials representing Australian Government, State and Territory governments and the Australian Local Government Association. It identified the strengths and weaknesses of current arrangements for managing natural disasters. The review recommended that the special needs of remote and vulnerable Indigenous communities be addressed as follows: Recommendation 59 That more flexible funding arrangements, and an outreach strategy, be adopted by all levels of government to ensure that remote Indigenous communities have improved access to funding for mitigation measures. Flexible funding will be achieved through the undertaking that the local contribution for mitigation measures be reduced or waived by agreement in certain circumstances so that barriers to participation are removed. Recommendation 60 That in appropriate disaster circumstances, recovery assistance through the Special Community Recovery Modules be used to support remote Indigenous communities. Recommendation 61 That personal hardship and distress assistance, administered in a flexible way, be available from State and Territory Governments for disasters below the small disaster threshold (Reference: Report to COAG, Natural Disasters in Australia: Reforming mitigation, relief and recovery arrangements (2002) 15

3. Vision, aim and principles 3.1 Vision The vision of the National emergency management strategy for remote Indigenous communities is: Prepared and safer remote Indigenous communities. 3.2 Aim The National emergency management strategy for remote Indigenous communities aims to improve emergency management at the local, regional, State and Territory, and national levels. It provides a strategic direction for emergency management in remote Indigenous communities and a framework for a coordinated and cooperative approach by agencies involved in emergency management. It promotes the consideration of community needs, collaborative decision-making and appropriate resource allocation, and seeks to ensure vulnerable and remote Indigenous communities are assisted by agencies to become more prepared and resilient in the face of emergencies. Importantly, the strategy prescribes the obligation of the Australian Government and State, Territory and local governments to partner with remote Indigenous communities to improve community safety and emergency management. To this end, the capacity of agencies to adequately service remote Indigenous communities may also need to improve and increase. 3.3 Principles This strategy seeks to address the shortcomings in the current whole-of-government emergency management system and make it inclusive of remote Indigenous communities. It is not trying to set up a parallel emergency management system. The principles underpinning the strategy are: Communication relating to emergency management is based on culturally friendly language and the use of different and appropriate mediums for remote Indigenous communities. Community emergency management plans are developed in consultation and partnership with remote Indigenous communities and governance structures. Community emergency management in remote Indigenous communities is included as part of the mainstream service provision work plans of all agencies. Flexible approaches in a multi-agency whole-ofgovernment approach are adopted by service providers to resolve emergency management issues in remote Indigenous communities. Flexible models of service delivery are used to meet the emergency management needs of remote Indigenous communities. Coordination and cooperation among all levels of government is essential for the effective implementation of emergency management in remote Indigenous communities. 16

4. Priorities To provide a strategic direction for emergency management in remote Indigenous communities, seven key priorities have been identified. Each priority has related goals and a set of guiding actions to enable the implementation and achievement of priorities. Together they are intended to form the basis for the development of action plans by State and Territory government agencies with jurisdictional responsibilities in emergency management to address the special needs of remote and vulnerable Indigenous communities, and assist the building of community capacity in relation to emergency management. The following section provides a description of each priority, its related goals and set of guiding actions, and an illustration of a good practice example initiative or action to demonstrate a goal or guiding action. Comments from the consultations relating to each priority are attached in Annex A. The specific priorities are: Priority 1 Decision-making structures in remote Indigenous communities for emergency management Priority 2 Communication and engagement with remote Indigenous communities on emergency management Priority 3 Community emergency management planning for remote Indigenous communities Priority 4 Community resourcing for emergency management in remote Indigenous communities Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities Priority 6 Empowering Indigenous people through emergency management training Priority 7 Education of Indigenous people 17

4.1 Priority 1 Decisionmaking structures in remote Indigenous communities for emergency management Indigenous communities have a decision-making structure that consists of a Community Council and/or Executive Committee. It also must be recognized that Indigenous Communities are unique in that all decisions are made collectively and the Elders and Traditional Owners have a significant role in this process. This must be recognised and accepted as the appropriate protocol for consultation relating to emergency management. Indigenous communities and their decision-making structures are important for the implementation of the New arrangements in Indigenous affairs and the National framework of principles for delivering services to Indigenous Australians, endorsed by COAG in June 2004. They will be required to demonstrate strong leadership and deliver on their shared responsibilities and mutual obligations with government agencies and service providers. Guiding actions Ownership of decisions Ownership of decisions regarding emergency management in Indigenous communities is held by Community Councils and other governance structures. Clarification of roles and responsibilities Present information to the Community Councils and governance structures about the roles and responsibilities of government agencies and service providers and how these relate to emergency management in Indigenous communities. Training and resources Ensure Community Councils and governance structures of Indigenous communities are appropriately resourced and adequately trained in emergency management. Community visits Arrange with the Community Council and governance structures any visits to Indigenous communities by external government agencies and service providers regarding emergency management. Partnerships Negotiate with the Community Council and governance structures for mutual support arrangements and agreements between Indigenous communities, government agencies and service providers for emergency management. Commitment and accountability Responsible and accountable governance is required for emergency management in Indigenous communities, and appropriate models from other communities are to be considered and adopted by Community Councils and governance structures. 18

G O O D P R A C T I C E E X A M P L E Partnerships Queensland Improving social, health and economic outcomes for Aboriginal and Torres Strait Islander people is a priority for the Queensland Government. A significant commitment to achieving this has been demonstrated throughout the development of a complete policy package, titled Partnerships Queensland: Future directions framework for Aboriginal and Torres Strait Islander Policy in Queensland 2005-10. This framework outlines an agenda for immediate and sustained action until 2010 towards achieving the Partnerships Queensland vision for Aboriginal and Torres Strait Islander Queenslanders to have their cultures affirmed, heritage sustained and the same prospects for health, prosperity and quality of life as other Queenslanders. Partnerships Queensland is an Australian first. It establishes a new way of doing business with Aboriginal and Torres Strait Islander people and communities through collaboration and partnerships at the local, regional and State levels. Four key goals strong families, strong cultures; safe places; healthy living; and skilled and prosperous people and communities provide a focus for the Government s action in a single, overarching framework. It is supported by a budget strategy, a performance framework, a blueprint for action, a State-wide communication strategy and strict governance arrangements. The Queensland Department of Emergency Services has put Partnerships Queensland into operation through a range of initiatives, notably through the establishment of an Indigenous Coordination Unit (ICU). The ICU undertakes whole-of-department State-wide planning in relation to service delivery and community safety initiatives for Indigenous communities, particularly those in rural and remote locations. The ICU is evidence of the commitment of the Department to enhancing safety in Indigenous communities. The unit comprises individuals with strong operational expertise, significant cultural knowledge and a background of working in Indigenous communities. The unit has the task of coordinating resources from a multi-service perspective and collaborating with relevant government agencies, non-government organisations, and Aboriginal and Torres Strait Islander communities to ensure community needs and priorities are met in relation to community safety. The unit also provides strategic advice in relation to Indigenous affairs to the Director-General and Executive Management Team, to regional planning and coordination teams and staff across the department, and to other agencies as appropriate. 4.2 Priority 2 Communication and engagement with remote Indigenous communities in emergency management The development of positive working relationships by agencies involved in emergency management with key leaders and people in remote Indigenous communities is a fundamental requirement for effective and productive communications and engagement. To ensure this happens, it is vital that communication and engagement about emergency management with Indigenous people in remote communities uses language and processes that are culturally sensitive and appropriate, user-friendly, clear in nature and purpose, and adhere to cultural protocols. Guiding actions Effective engagement In communications with Indigenous people in remote communities, demonstrate positive attitudes, different and flexible approaches, understanding of the diversity of groups, cultural issues, and language barriers, and respect for cultural protocols and governance structures. Consult with remote Indigenous Community Councils and governance structures about community needs relating to emergencies, community safety and emergency management, and give feedback to communities about consultations. 19

G O O D P R A C T I C E E X A M P L E S Ensure involvement of all appropriate Indigenous stakeholders of remote communities and at regional level in consultations and communications relating to emergency management. Provide information on all related emergency management matters to remote Indigenous communities, including funding information. Appropriate relationships Develop and maintain positive and meaningful relationships with remote Indigenous communities to promote and assist the building of emergency management capacity in the communities. Database of community contacts Establish a database of community contacts, and obtain information on the community calendar of events meetings and arrange meetings to suit the community. 4.3 Priority 3 Community emergency management planning for remote Indigenous communities The development and preparation of a Community emergency management plan is crucial for community safety in remote Indigenous communities. To achieve this, the plan needs to be in a user-friendly format setting out actions for PPRR in emergencies. It should also clarify the roles and responsibilities of relevant community people (including residents and visitors) and external government agencies and service providers. Guide to working with Aboriginal and Torres Strait Islander communities (Queensland) The Queensland Department of Aboriginal and Torres Strait Islander Policy and the Department of Communities have produced Engaging Queenslanders: Introduction to working with Aboriginal and Torres Strait Islander communities. This guide aims to improve engagement between government and Aboriginal and Torres Strait Islander people. It provides historical and contextual information to better inform government officers in their engagement practices. Importantly, it highlights the responsibility of all government officers in building reciprocal relationships with Aboriginal and Torres Strait Islander Queenslanders and the responsibility to fully consider and respect the individual needs and aspirations of communities. The guide also highlights the need for government officers to operate in coordination to avoid duplication and waste, and to improve pathways through complex government systems. FESA Framework for engaging remote Indigenous communities (Western Australia) The Fire and Emergency Services Authority (FESA) of Western Australia has published the Framework for engaging remote Indigenous communities. The purpose of the framework is to support FESA s vision of a safer community by embracing a strengths-based, capacity-building approach when working with Indigenous communities. It is underpinned by critical engagement principles including the need to go to the community, establish relationships, build trust, work with all aspects of the community (which includes Elders, Men, Women and Young, as well as service providers) to seek a collective commitment and, most importantly, recognise community self-determination. The framework holds that engagement goes further than participation and involvement. It conveys the idea that people s attention is occupied by an issue sufficiently important to demand their attention, and their efforts are focused on the matter at hand. It implies a commitment to deeds, not only words. FESA works with a range of people across communities, including those that are most vulnerable to natural hazards. The framework encompasses all emergency services functions, including the state emergency management arrangements, policies, emergency risk management process, training, program development, and funding arrangements for the prevention of, preparedness for, response to and recovery from natural hazards. 20

G O O D P R A C T I C E E X A M P L E S It is essential that the plan is determined and cosigned by the community in partnership with agencies involved in emergency management. The plan needs to be owned by the community and well understood and promoted by community leaders and governance structures. Guiding actions Community-based planning Agencies are involved in emergency management work with remote Indigenous communities. Identify priorities and needs and allocate resources accordingly. Ensure town planning in remote Indigenous communities takes into account emergency management issues. Ensure the Community emergency management plan is regularly monitored and reviewed. Indigenous traditional knowledge and experience Ensure the Community emergency management plan incorporates the traditional knowledge and experience of local Indigenous Elders and people about the environment, signs indicating weather patterns and potential emergencies, and ceremonies for protection from disasters etc. Community planning (Northern Territory) The balance of cultural and traditional beliefs with modern non-indigenous concepts of town planning is often a difficult exercise in remote Indigenous communities. After two devastating floods at Wugularr (Beswick) in the Northern Territory, the community was prepared to work with relevant government departments and agencies involved in emergency management and community development to find a workable solution. As a result of ongoing consultations, the traditional owners were able to come to an informed strategic decision based on the evidence presented; this was to move the community to higher ground. The decision in itself appears obvious, but the community had to deal with enormous cultural considerations because the only high ground in proximity was considered sacred. The community could have chosen to stay and continue to abdicate responsibility for evacuation and recovery to governments, if future flooding occurred. The decision to instigate prevention measures by moving to higher ground overrode cultural considerations; this was an important and significant step forward in future emergency planning for that community. Community Emergency Risk Management Plans (South Australia) Community Emergency Risk Management Plans for the Nepabunna and Dunjiba Community Councils in South Australia were developed in partnership between and within the councils and SAFECOM, the emergency services organisation. In the process, the community language, beliefs and culture were recognised and respected and the councils were consulted on aspects of emergency management. 21

4.4 Priority 4 Community resourcing for emergency management in remote Indigenous communities It is essential that there is government commitment to address the access, human, financial and physical resources impacting on effective emergency management in remote Indigenous communities. To achieve this, government commitment and resources must be proportionately directed and quarantined relative to the matters pertaining to emergency management in remote Indigenous communities. Where viable, funding agency protocols should have the flexibility to incorporate joint Commonwealth, State and Territory funding initiatives. This will provide support and assistance to ensure there is adequate and appropriate community infrastructure and planning for emergency management. It is important that the PPRR philosophy contained within emergency management is a component of community development for Indigenous communities and that this philosophy is included in the action plans of all agencies. Guiding actions Identify priorities and needs Through effective community engagement and government decision-making, identify resource priorities and needs. Resourcing Identify specific funds for remote Indigenous communities for sustainable emergency management in communities, including funding for infrastructure and essential services, and education, training and possible employment of Indigenous people. Provide information to remote Indigenous communities on funding opportunities for emergency management and assist the development of proposals and applications. Ensure new guidelines and application procedures for emergency management funding are in user-friendly formats to cater for numeracy and literacy skills of Indigenous people in remote communities, and use interpreters/language where appropriate. Be aware of the low capacity of remote Indigenous communities to pay for services for emergency management Ensure that specific funding for Indigenous emergency management programs is made available to communities, and that the funding amounts available within those programs is needs-based and commensurate to those funds within mainstream funding programs. 22

G O O D P R A C T I C E E X A M P L E S Indigenous Australian Service Delivery Enhancement Package (Queensland) The Indigenous Australian Service Delivery Enhancement Package was initiated by the Queensland Department of Emergency Services (DES) in 2002. The package provides significant funding to improve services and enhance community safety for Indigenous communities and individuals. Through the package, DES funds and delivers a range of initiatives that improve the safety and wellbeing of Aboriginal people and Torres Strait Islanders. The package provides the foundation for DES to engage with Indigenous Australian communities in the development of flexible models of service delivery. It outlines a range of specific strategies to enhance employment and training opportunities for Indigenous people and to assist with community capacity building in relation to community safety. Initiatives include recruitment of operational staff and training officers, and the delivery of appropriate community safety programs, equipment and minor capital works. Resourcing for Community emergency recovery (Northern Territory) Governments can financially assist communities through the recovery process by offering construction/clean-up refurbishment contracts to local businesses or councils where practicable. This was evidenced in the Victoria River floods of 2001 in the Northern Territory, where government contracts to the value of approx $560,000 were awarded to a local council. This had the two-fold effect of injecting muchneeded funds into the community and allowing community members to feel that they were involved in their own recovery process. Coordinated approach in emergency management (Western Australia) Kalumburu is a remote community of about 400 people located on the banks of the King Edward River in the far north of the Kimberley. It is one of the most isolated Indigenous communities in Western Australia and is vulnerable to tropical cyclones, floods, isolation and bushfires. In March 2005, Kalumburu took the full impact of the Category 4 Severe Tropical Cyclone Ingrid. The high level of communication and consultation with the community was the most beneficial tool in managing this event. Many months beforehand, a community Elder, who was also a SES volunteer, was instrumental in having a cyclone warning system installed in the community. Prior to the impact of Tropical Cyclone Ingrid, he kept in regular contact with FESA to discuss community preparations and available assistance. An Indigenous volunteer with the Kununurra SES Unit was also deployed to assist the community. A well-coordinated preparation phase ensured the community s safety. Regular updates involving all community agencies ensured an efficient transfer of information and a well-coordinated evacuation of at risk community members. It also assisted in effecting a sense of ownership, and a calmer and more informed response. The provision of response teams to Kalumburu was based on the need to make safe, and restore, access while encouraging local ownership. Overall, the community prepared extensively, responded appropriately and participated well in the recovery process. 4.5 Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities In accordance with the whole-of-government approach outlined in the New arrangements in Indigenous affairs, it is essential for agencies involved in emergency management to undertake planning and delivery in a coordinated and cooperative way. This requires multiagency and flexible models of service delivery to meet the needs of communities. Representation of Indigenous people on emergency management governance and advisory bodies is critical to achieving this, along with the recognition of the diversity of remote Indigenous communities and respect for their culture, languages and lifestyles. 23

Guiding actions Representation on decision-making bodies Encourage relevant Indigenous people to become members on all decision-making bodies at national, State/Territory, regional, and district and community level, including advisory and management bodies related to emergency services/management for remote Indigenous groups and communities. Recognition of diversity, tradition and culture Recognise and work with the diversity of remote Indigenous groups and communities, and their lifestyles, traditions, customs, languages and protocols. Respect the traditional values and knowledge systems that exist within many remote Indigenous communities and include them within the context of emergency services and management in these communities. Undertake cultural-awareness training on Indigenous cultures and groups, including Aboriginal and Torres Strait Islander peoples. Coordinated and cooperative approach Ensure commitment and accountability at all levels of government. Adopt a flexible approach to service delivery. For Community Councils and governance structures, adopt a coordinated and cooperative approach that focuses on the needs of communities and how those needs can best be met, rather than focusing on what services agencies and service providers can provide. Identify Government Champions Identify Chief Executive Officer (CEO)-level Government Champions in each State and Territory and in the Australian Government to ensure commitment and better communication across all jurisdictions for an improved coordinated and cooperative approach to policy development and service planning and delivery for emergency management in remote Indigenous communities. Formal agreements State and Territory agencies involved in emergency management, in partnership with relevant Australian Government agencies and local government, are to work with remote Indigenous communities to develop shared responsibility agreements for emergency management. These agreements should identify community priorities for emergency management and prescribe the responsibilities and commitment of all parties to address those priorities. The agreements should include, where relevant, agreed State-based and cross-border recovery arrangements between agencies for emergency management. 24

G O O D P R A C T I C E E X A M P L E Government Champions and Negotiation Tables (Queensland) Government Champions are CEOs (directors-general) of Queensland Government agencies who are assigned to remote Indigenous communities to support communities in planning and delivering community-specific services, programs and initiatives. Government Champions enter into a partnership with communities to develop creative solutions to local issues, through enhancing communication and collaboration across all levels of government and by reducing red tape. Key functions of Champions include personal visits to their communities to develop effective and positive relationships with community leaders and community stakeholders, and becoming familiar with the social, cultural and historical aspects of the communities and the agreed outcomes and opportunities to be achieved in partnership with the communities. Another key function of Champions is to assist communities in their communications and negotiations with other government agencies during Negotiation Tables. Negotiation Tables are an effective method used in Queensland Aboriginal and Torres Strait Islander communities to resolve priority issues at the local level. The Negotiation Table process involves a sustained process of consultation, planning and negotiation between community representatives and local, State and Australian Government agency representatives. The process is founded on the principles of reciprocity and mutual responsibility and accountability for identifying and resolving issues. Government Champions assist and lead this process. 4.6 Priority 6 Empowering Indigenous people through Emergency Management Training Training of Indigenous people in emergency management is fundamental to improving safety in remote Indigenous communities in a sustainable way and to developing positive relationships between service providers and communities. It also demonstrates a commitment by emergency management agencies and related agencies to assist the empowerment of Indigenous people and to build the capacity of communities to plan and implement actions. Indigenous people should also be encouraged to be involved in the development and delivery of emergency management education and awareness programs in their local communities. Employment opportunities for Indigenous people should be identified and provided by emergency management agencies wherever possible. Guiding actions Resourcing training Identify and provide funding for training of Indigenous people in emergency management and, where possible, provide employment opportunities. Provide ongoing training for Indigenous people, supported by adequate and appropriate resources, for emergency management. 25

G O O D P R A C T I C E E X A M P L E Delivery of training Ensure that training programs in emergency management for Indigenous people are delivered by Indigenous people and/or in conjunction with non- Indigenous people who have the required technical knowledge and experience. Ensure training and employment in emergency management for Indigenous people are strengthsbased and recognise the existing skills, knowledge and experience of Indigenous people. Provide opportunities for Indigenous people to be trained as facilitators in the delivery of emergency management education and awareness programs. Ensure training for Indigenous people in emergency management includes leadership for capacity building and, where possible, provides a path to employment in emergency management agencies and other government agencies. Emergency Risk Management Training Program for Isolated and Remote Indigenous Communities (Western Australia) FESA, Western Australia, has developed an Emergency Risk Management Training Program for use in isolated and remote Indigenous communities in accordance with AS/NZS 4360:1999. It is a community-centred approach to education and training in emergency risk management processes in these communities. The program is designed for delivery to key Indigenous members of the community governance structures and service providers, as well as residents who have leadership roles in the community. These include members of the Community Council, community workers, and employees of government agencies and other service providers located in the community. The purpose of the program is to promote knowledge and understanding of the importance and processes of emergency risk management, and to assist Indigenous people to use this knowledge and understanding as a basis for relating and working more effectively with FESA employees to establish appropriate arrangements for community-centred emergency risk management. Provide training in emergency management that is customised, practical, relevant, culturally appropriate and sensitive, and meets the needs of Indigenous people in remote communities. Provide training programs in emergency management for CDEP workers in remote Indigenous communities. Provide training for Indigenous people to obtain relevant licences and permits to operate emergency management apparatus, equipment and machinery. 26

Ensure education on emergency management is considered as part of school curriculum. Resource materials 4.7 Priority 7 Education of Indigenous people Education of Indigenous people at the community level is essential to improve their awareness about the risks of emergencies and emergency management. Education programs on emergency management will promote the importance of effective and sustainable emergency management in remote Indigenous communities. It is crucial that emergency management education programs are developed and delivered through a coordinated and cooperative approach by all relevant agencies. The views and knowledge of remote Indigenous communities need to be considered and integrated into any education initiative in a reciprocal way. Guiding actions Education and programs Ensure education programs in emergency management for remote Indigenous communities are developed and delivered by Indigenous people and/or in conjunction with non-indigenous people. Ensure Community Safety Education kits are developed for remote Indigenous communities in partnership with Indigenous people. Develop and provide a range of educational resources. Develop culturally appropriate and user-friendly educational resources with input from the community. Promotion of programs and resources Promote education programs, in particular culturalawareness training for government agencies and service providers. Provide user-friendly emergency management and community safety messages that can be converted into local Indigenous languages by interpreters. Provide information sessions and workshops on emergency management through visits to remote Indigenous communities and at regional forums, conferences, cultural events and expos for Indigenous people living in and/or working with remote communities. Ensure community awareness and education programs on emergency management in remote Indigenous communities are provided for all residents and groups. 27

G O O D P R A C T I C E E X A M P L E S Junior Indigenous Community Safety Program (Queensland) The Junior Indigenous Community Safety Program is being delivered by the Queensland DES in targeted primary schools in remote Indigenous communities. It aims to establish a strong and positive relationship between local emergency services personnel and children to inspire them to want to continue at school and join emergency services, and to provide them with a range of practical life skills. Those skills include boat safety, navigation and mapping, bushcraft, fire safety and junior first aid. Fire safety in Aboriginal communities (New South Wales) The New South Wales Fire Brigade s program for fire safety in Aboriginal communities aims to: reduce fires and other emergencies within Indigenous communities build capacity within Aboriginal communities to increase their preparedness for, and resilience to, fires and other emergencies, and engage and build relationships with Aboriginal communities to assist them in developing programs to improve Indigenous housing safety. Components of the program include: safety promotions through the Indigenous media, including the press (for example, Koori Mail, radio and television) involvement in a range of Indigenous community events, including running displays and giving out safety materials and promotional items establishment of six Aboriginal Community Fire Units in locations with substantial Indigenous communities, and sourcing of traditional Indigenous fire stories that assist in communicating respect and understanding of fires to younger members of Indigenous communities. 28

5. Reporting on progress and achievements The fulfilment of the National emergency management strategy for remote Indigenous communities rests in the cooperative efforts of all levels of government and Indigenous communities to achieve improved emergency management and community safety outcomes within these communities. Progress in implementing the strategy will be communicated through the reporting framework described below in order to ensure each government/ agency s commitment and accountability to the strategy and to comprehensively report on any initiatives undertaken. Projects and initiatives conducted under the auspice of this strategy should commence with a view that results can be measured. A two-way reporting process should satisfy both Indigenous people and government that improvement has taken place. 5.1 Agency responsibilities AEMC supports A/APMC and provides national leadership and strategic direction on emergency management. AEMC oversees the cross-jurisdictional approach to implementation of the COAG Report on natural disasters in Australia. It liaises and consults with a number of committees that have responsibility for various aspects of emergency management. AEMC reporting on implementation of this strategy aligns with reporting on COAG recommendations to improve resilience in remote Indigenous communities. AEMC will provide A/APMC with information on the progress and outcomes of the strategy and propose future directions. RICAC will coordinate the Australian Government and State and Territory responses. The key priorities contained in the strategy form the basis for project identification and planning between government agencies and communities. Agencies will initiate projects through active engagement with communities and ratify these where necessary with cosigned agreements. 5.2 Reporting The Australian Government, each State and Territory, and the Australian Local Government Association will develop an implementation plan including performance measures that address each of the seven priorities. State and Territory agencies will formulate progress reports in conjunction with communities on an annual basis, with reports provided to RICAC. RICAC will raise papers for AEMC consideration and present them through the Emergency Management Australia Secretariat. The recommendations contained in the papers will guide AEMC action and, where the recommendations are of a sufficiently strategic nature, AEMC will forward them to A/APMC for consideration. 5.3 Timing Timing of reporting will be aligned with that of the COAG reporting process. The formal reporting process will commence in 2007. The first consolidated report will form a baseline upon which to report ongoing progress. Reported improvements will reflect the extent to which emergency management outcomes for remote Indigenous communities have improved. 29

Annex A Summary comments from consultations Priority 1 Decision-making structures in remote Indigenous communities for emergency management Government representatives need to address councils on their roles/responsibilities. We need good basic governance structures plus capacity-building for communities. Delegate authority for emergency management to Indigenous communities and council. Location of decision-making needs to be in communities. Consider language barriers, different groups, cultural issues and protocols. Develop community profile and emergency services profile. Community need to develop understanding of government agencies and services and vice-versa. Discussion of issues by Indigenous people can occur in a variety of ways. There needs to be Indigenous participation in discussion about emergency services and agreements. Have a physical presence in communities get out to each community to discuss issues of importance. Visits could be scheduled to coincide with monthly Community Working Party meetings. Priority 2 Communication and engagement with remote Indigenous communities in emergency management Communication needs to be directly with communities. Communication and engagement is a two-way process. Communication is about getting together and talking. Communication is information coming in and going out. Communication can include video conferencing. There was no engagement of service providers with community about significant cultural issues. Learn within the community, for example, culturally sensitive processes, knowledge systems and emotional effects of emergencies. Priority 3 Community emergency management planning for remote Indigenous communities Planning needs to involve communities, emergency services, local councils/shires, health services and relevant government agencies. Community emergency management plan needs to be user-friendly and involve all government agencies and service providers and consultation with all groups in a two-way flow. 30

The emergency management plan should include standard operation procedures. Use models from other communities and cultural and local knowledge. Emergency Management Plan or Action Plan needs to be monitored and reviewed regularly. Community emergency management plan needs to be developed with involvement of Local Emergency Management Committee for assisting with the plan and consistency. Policies of government agencies need to be cognisant of community needs and expectations. Emergency management plan needs to be developed by council, administration and service providers and owned by the community. It should include local Indigenous cultural issues, kinship relationships, and knowledge and experience. There should be a Community Layout Plan including people in the community, infrastructure, environmental issues, response systems needed, equipment and vehicles, supplies, shelter and accommodation, replacement matters and funding. The plan should include links between big and small communities, roles and responsibilities, risk assessment strategies, education, induction and training, communication and warning response. As the reserve is Lands Council land, it does not fall into council s jurisdiction, detailed action plan needs to be put in place with responsibilities and stakeholders clearly identified. Involvement of Community Council, Indigenous corporations, government agencies, service providers, workers, stations, and outstations. Strategic planning at local community level supported and accepted by government agencies Priority 4 Community resourcing for emergency management in remote Indigenous communities We need fire equipment and appliances of the required standard and standard safety gear for appropriate protection. There should be a siren to notify community about an emergency. Priorities include improved road access (to allweather at a minimum), better health services and infrastructure. There needs to be capacity building in the community. Infrastructure needs to be up to required standards, for example, airport in relative location. We need proper equipment like generators for power and trucks with pumps, medical emergency plan and equipment, and good communication systems like satellite phone and two-way radios. Resources could be provided by local fire/bush fire brigades, shires, with funding assistance from relevant government agencies. 31

Community was built in wrong place lack of proper town planning. Lack of information about insurance, which led to loss of personal effects and contents of home that had emotional effects. Island communities need SES vessel with trailer and vehicle, equipment and insurance. Simulated emergency exercise on site and debriefing remote communities. Funding for PPRR user-friendly, simple application/ outcome based/targeted, not bureaucratic. Priority 5 Coordinated and cooperative approach to emergency management in remote Indigenous communities There needs to be a consistent approach to emergency management in remote Indigenous communities by all government agencies and service providers. There should be involvement of Indigenous people in board structures for emergency management. Emergency management for remote Indigenous communities should be a standing agenda item for emergency services managers meetings. CEOs of emergency services provide updates to service providers and lead agencies. Indigenous person from remote Torres Strait Islands community must be on RICAC. Establishment of support networks for people in remote Indigenous communities, through Department of Aboriginal (Indigenous) Affairs and involve government agencies and organisations. Cultural awareness training for emergency services personnel. Through consultation with individual communities/ Community Working Parties Shared Responsibility Agreements can be developed to include all tiers of government through the COAG process. Priority 6 Empowering Indigenous people through Emergency Management Training There needs to be consistent training appropriate to local community. We need employment and permanent jobs in the community. Training needs to include recognition of prior learning and skills. Delivery of programs needs to be by Indigenous people. Funding and training for community coordinators. Local person to be trained as a counsellor as too many people walking around with post-traumatic stress. SES members and volunteers need training that uses their local knowledge and experience. 32

Training for chemical use, first aid and emergency services. Training on risk management assessment and response. Link CDEP to training for emergency services on remote Indigenous communities. Employ Indigenous workers for community links to emergency management coordination. Accreditation requirements for training programs sometimes a barrier for Indigenous people on remote communities. Training programs in remote communities need to take into consideration literacy and numeracy levels of Indigenous people. Culturally-appropriate resources can be developed by community. Community education post-cyclone and in school. Road show on emergency services and management to visit remote Indigenous communities. Information sessions on emergencies and emergency management by emergency services people. Regional forums for remote Indigenous communities on emergency service and management. Conference for remote Indigenous communities on emergency services and management. Integrated training programs, for example, health services/workers in emergency management. Priority 7 Education of Indigenous people Develop local and real resources that are culturally appropriate. We need community education about fire prevention. There should be involvement of schools for making resources. Training centre and art program can develop resources. Cyclone kits to be made up train Indigenous Health Workers. 33

Shortened forms A/APMC AEMC CDEP CEO COAG DES FESA ICU PPRR RICAC SES Augmented Australasian Police Ministers Council Australian Emergency Management Committee Community Development Employment Program Chief Executive Officer Council of Australian Governments Department of Emergency Services Fire and Emergency Services Authority Indigenous Coordination Unit prevention, preparedness, response and recovery Remote Indigenous Communities Advisory Committee State Emergency Service 34

Glossary In this strategy the following meanings apply to these terms: Capacity building refers to the process of building on the strengths or assets of individuals or communities. In the case of emergency management, this may include developing or enhancing the awareness, knowledge and skills of individuals and communities to identify risks and priorities and to prevent, prepare for, respond to and recover from emergencies. Community Councils refers to any formal governance structure within a remote Indigenous community. This term acknowledges the differing governance structures that exist across the States and Territories. Community engagement refers to the connections between governments, individuals and communities on a range of issues. It encompasses a wide variety of interactions, ranging from informationsharing to community consultation and collaborative decision-making, including through the involvement of governance processes. Effective engagement implies a commitment to a shared vision. Community safety refers to a collaborative effort by community, government and non-government groups to build capacity within the community to mitigate the effects of emergency or disaster events. It aims to build community self-reliance. Emergency management refers to the plans, structures and arrangements which are established and implemented in comprehensive and coordinated ways by communities and a range of agencies to deal with emergency needs, improve the safety and wellbeing of individuals and communities, and to reduce risks to life, property and the environment. It is defined as prevention/mitigation, preparedness, response and recovery. Indigenous refers to Aboriginal and Torres Strait Islander peoples of Australia. Preparedness refers to measures aimed at ensuring communities and service providers have the capacity and resources to respond to and cope with the effects of emergencies. Prevention/Mitigation refers to measures taken in advance to eliminate emergencies or reduce the impact of emergencies on individuals, the community and the environment, including any action taken to permanently eliminate or reduce the long-term risk to life, property, the environment and function from hazards. Recovery refers to measures to support individuals and communities impacted by emergencies in the reconstruction of infrastructure, the restoration of services and the restoration of social, emotional, physical and economic wellbeing. It also refers to measures to return communities to a state of preparedness after an emergency situation. Response refers to measures to control or limit an emergency to reduce its consequences. 35

Bibliography Australian Bureau of Statistics 2001, Housing and infrastructure in Aboriginal and Torres Strait Islander communities, Australia, cat.no.4710.0, ABS, Canberra. Australian National Audit Office 2000, Commonwealth emergency management arrangements, Australian Audit Office, Canberra. Council of Australian Governments (COAG) 2004, Natural disasters in Australia: Reforming mitigation, relief and recovery arrangements, Department of Transport and Regional Services, Canberra New arrangements in Indigenous affairs, 2004 OIPC, Retrieved June 1, 2006, Available at: http://www.oipc.gov.au/about_oipc/new_arrangements.asp COAG: National framework of principles for delivering services to Indigenous Australians in Indigenous affairs arrangements, 2004 OIPC, Retrieved June 1, 2006, Available at: http://www.oipc.gov.au/about_oipc/indigenous_affairs_arrangements/10coag.asp 36