Speeches: 2004
Because every emergency is a local emergency
As we know, emergency management in Australia involves prevention, preparedness, response and recovery carried out through an active partnership involving all three spheres of government, the private sector, non-government organisations and trained volunteers. A whole-of-government approach is now considered the only effective way to manage disasters - regardless of whether they are caused by landslide, bushfire, terrorism, industrial accident or cyclone.
Address to New South Wales Local Government in Emergency Management conference
Councillor Mike Montgomery
President, Australian Local Government Association
21 May 2004: Melbourne
It's a pleasure to be here with you in the Blue Mountains to discuss the role of local government in emergency management.
While ALGA is delighted to be able to support this conference in partnership with EMA, I would like to acknowledge that we are here today as a result of the initiative and dedication of the State Emergency Management Committee and the NSW Local Government and Shires Association.
I'd like to do four things today.
Firstly, I'd like to look at the role local government plays in emergency management.
Secondly, I'd like to look at national emergency management activities and programs that impact on local government, particularly the COAG review of arrangements for dealing with natural disasters in Australia.
Thirdly, I'd like to outline activities undertaken by ALGA in collaboration with Emergency Management Australia - the Commonwealth's lead agency for coordinating its disaster response.
And finally, I would like to make the case for a stronger relationship between local government and the Australian Government to enhance the emergency management capability of Australia's 700 councils.
I begin by acknowledging the developing relationship between ALGA and EMA.
I have been impressed by EMA's work and its recognition of the important role local government plays in emergency management.
As we know, emergency management in Australia involves prevention, preparedness, response and recovery carried out through an active partnership involving all three spheres of government, the private sector, non-government organisations and trained volunteers.
A whole-of-government approach is now considered the only effective way to manage disasters - regardless of whether they are caused by landslide, bushfire, terrorism, industrial accident or cyclone.
Whole-of-government means not only functions of government, but also spheres of government.
While the primary responsibility for the protection of life and property rests with the states and territories, the Australian Government provides guidance and support and - in the event of a major emergency - additional assistance on request.
For its part, local government plays what EMA describes as a "key role" due to its close community links and provision of many essential services.
Local response capability has been rightly described as the basic building block of our ability to deal with emergencies.
We play a critical co-ordination role - but we also play a key leadership role, particularly in the recovery phase.
Time and time again, it is the mayor or shire president and his or her emergency team that leads a community through tragedy, anger, grief and back on the difficult and sometimes painful road to recovery.
I'm pleased that EMA places a high degree of importance on the role of what it describes as the 'prepared community'.
It has described three vital links in dealing with emergencies - individuals, voluntary organisations, and local government.
As the EMA has said, local government provides a variety of public works and services such as health, welfare and other functions which are needed every day, and never more so than when the community is affected by major hazards.
Experience shows that affected communities turn first to their local agencies for advice, assistance and support.
COAG Review of Natural Disasters
I turn now to the review of national arrangements for dealing with natural disasters undertaken by the Council of Australian Governments.
Local government has participated in the preparation of the Natural Disasters in Australia report. We are also represented on the organisation charged with its implementation - the augmented Australasian Police Ministers Council and its supporting committee, the Australian Emergency Management Committee.
COAG gave in-principle approval to the report's recommendations in December last year.
The result is an agreement to introduce a national systemic process of disaster risk assessment involving a fundamental shift beyond disaster response towards cost-effective, evidence-based disaster mitigation.
In general, the COAG review provides a comprehensive response to a number of issues raised by local government over recent years.
While there are new responsibilities for local government, they are equitable in terms of the obligations imposed on - and shared with - other spheres of government.
They also recognise the diversity of local government and provide flexibility in the required responses to the report's recommendations.
One of the key recommendations - recommendation 45 - requires all local governments to develop and implement disaster mitigation plans by the end of 2005.
Those that fail to do so, could be faced with a 10% deduction in available disaster relief assistance.
While we argued this was a somewhat perverse incentive, we have been able to gain an extension of the deadline from December 2005 to December 2006.
ALGA will liaise closely with state and territory local government associations and members of the Australian Emergency Management Committee to ensure local government's needs and interests continue to be recognised in the implementation of the review's recommendations.
Other important recommendations relate to land use planning for risk reduction and mitigation, disaster resilient building standards and - importantly - the elimination of barriers preventing local government from re-zoning high risk land.
A further recommendation that will be welcomed by councils concerns Natural Disaster Relief Arrangements for damaged infrastructure.
The Commonwealth currently allows funding to restore damaged infrastructure to be allocated on the basis that the infrastructure is restored to its 'original' condition.
The recommendation calls for funding to be allocated to rebuild damaged infrastructure to a more resilient standard.
This will allow local government to improve infrastructure to better deal with future disasters.
The cost of upgrading damaged local government infrastructure is to be shared on a one third basis for each level of government.
In fact, the familiar one third principle has been adopted by the review as the basis for cost sharing arrangements for the key areas of natural disaster mitigation, disaster planning, preparedness and response, and relief and recovery.
For local government, however, there will be a maximum contribution of one third of the cost of disaster risk assessment and mitigation measures. In the case of Indigenous or needy communities, this contribution can be reduced or even waived.
I should also mention that the Australian Government has commited some $45m over the next five years to fund projects under the Natural Disaster Mitigation Program.
The program will incorporate the existing Natural Disaster Risk Management Studies Program and will be available to assist projects such as warning systems, land and building purchase schemes in high-risk areas, risk management studies, retarding basins and levees and other engineering works to protect against damage.
I'd like to turn now to ALGA's work with Emergency Management Australia.
Under this partnership, EMA is funding the Local Government Emergency Management Capability Development program.
This conference is - in fact - partially funded through this program.
A number of projects are now underway in which local government is working with state emergency management agencies to improve their ability to manage and respond to emergencies in all their forms.
ALGA and EMA are currently discussing a national project to assist local governments to better manage and plan for disasters, particularly in light of the COAG review of natural disasters.
ALGA also represents local government on the newly created National Community Safety Strategy Group which reports to the Australian Emergency Management Committee.
The COAG review recognises the importance of community awareness and education delivered at the local level for effective emergency management and response.
The Community Safety Strategy Group is working to come up with effective mechanisms to achieve greater national collaboration and improvement in community awareness and education.
I look forward to hearing more of their work in due course.
I turn now to the question of how we can more directly build capacity at the local government level.
Last year, as I was browsing through EMA's impressive website, I came across one statement which clearly showed the importance placed on local government.
It read - and I quote:
"The Commonwealth sees the community as the primary focus, in prevention, preparedness, response and recovery.
"Local government is seen as the most immediate agent through which appropriate systems can be set up.
It went on:
"We believe that any successful emergency/disaster management system relies upon effective arrangements being in place at the local level."
End of quote.
There is no doubting the value local government brings to emergency management. What is less clear is the full extent and variety of the many challenges facing local government across Australia.
Col Sullivan noted that the obstacles facing rural councils are vastly different to those facing municipal councils.
But perhaps the common thread is the lack of resources and a need for approaches to emergency management that respect differences at the local level.
The cost of emergency service facilities that must be met by local government is considerable. And these need to be met at a time when local government faces significant cost escalations across all services delivered by councils.
It is time - I think - for the Australian Government to work with local government to see what more can be done to build capacity at the local level to ensure these expectations are fully met.
Boosting local government's emergency management capabilities takes time and money.
Local government may be able to take care of the time, but we certainly need help with the money.
As the House of Representatives report on cost shifting and local government financing made clear, local government is under a great deal of financial pressure and does not have access to the same revenue raising capacity and growth taxes enjoyed by both the federal and state governments.
If we are to enhance capacity at the local level, two things need to happen.
Local government needs a new financial relationship with the Commonwealth that gives councils access to a fair share of national taxation revenue. Placing local government on a secure financial footing will enhance our capacity across the entire range of services and activities undertaken by councils.
ALGA is pursuing this case through the Local Government and Planning Ministers' Council and COAG. It will be a long and difficult task, but one that must be addressed.
Secondly, the Australian Government should explore a program of direct financial assistance to councils to enhance emergency management capabilities.
There are two reasons that make this case compelling.
Firstly, the Commonwealth can afford it. The economy is strong and robust and the outlook is for continued growth. As revenue grows, the ability of the Commonwealth to assist local government grows with it.
Secondly, the increasing terrorist threat has generated new spending on security measures totalling hundreds of millions of dollars. In last week's Budget alone, we saw an additional $755 million allocated for intelligence and security arrangements.
Hori Howard observed yesterday that terrorism is something of an unknown threat in comparison to natural disasters.
One of the best ways of enhancing the nation's capacity to respond to security threats is to enhance our all hazards approach to emergency management.
By enhancing our capacity to meet all hazards, we will be better placed to meet all threats to our communities, whether natural or man made.
I'm pleased to say that the Prime Minister has asked that a working group be established with ALGA to explore ways in which local government can contribute to the national security effort, focussing on local government's role in emergency management planning and critical infrastructure protection.
In other words, we're off to a good start.
Over the past day and a half, you have heard about the importance of intergovernmental cooperation in emergency management.
This conference can be held up as a best practice example of such cooperation. ALGA is delighted to be able to support this conference with EMA and it would not have been possible without collaboration at all levels of government.
I might finish by complementing all delegates here today on the work you do.
Your role in emergency management is of critical importance to our communities.
The work you do now - and the work you will do in the future - will be of fundamental importance to Australian communities.
When you are needed most, you're there and you're prepared.
Your diligence is saving our lives, it's protecting our property, it's keeping our communities together.
Thank you.
Cr Mike Montgomery
21 May 2004
