Part 3: What has Auckland Council achieved so far?
3.1
In this Part, we discuss Auckland Council's progress to date in addressing the recommendations of the three reviews, as reflected in the Prioritised Plan. In Part 4, we discuss Auckland Council's planning to achieve the overall objectives of the Group Plan.
3.2
We expected to see that Auckland Council had effectively addressed the recommendations and, where it had not yet addressed recommendations, it had clear, measurable, and realistic plans in place to do so.
3.3
We found that Auckland Council has made significant progress in implementing Prioritised Plan actions over the past year. However, there is more work to do to fully implement, embed, and test the changes made in response to the three reviews.
3.4
Although our focus was on Auckland Council's progress on the Prioritised Plan, we consider that in total 38 of the 51 recommendations have been fully addressed.
Auckland Council has made significant progress in implementing the Prioritised Plan
3.5
Auckland Council has made significant progress in implementing Prioritised Plan actions to address the recommendations from the three reviews. We summarise Auckland Council's achievements in improving its emergency preparedness below.
Auckland Council has finalised a new Group Plan for 2024-2029
3.6
A recommendation of the Bush review (and later our report) was for Auckland Council to urgently finalise a new group plan for emergency management.
3.7
During 2023, Auckland Council acted with urgency to finalise its draft group plan, within the legislative requirements of the Civil Defence Emergency Management Act 2002. The final group plan was approved by the Auckland CDEM Committee in March 2024 and published on Auckland Emergency Management's website.
Auckland Council has revised its emergency response structure and increased its resourcing
3.8
The Bush review recommended that Auckland Council review and update its emergency response structure, which is based on the Coordinated Incident Management System (CIMS) framework.
3.9
CIMS is New Zealand's official framework for co-ordinating emergency responses at the local, regional, and national levels.21 Under the CIMS framework, there are prescribed functions that set out the range of activities that need to be carried out in an emergency response.22
3.10
Although the CIMS framework was in place at Auckland Council at the time of the 2023 floods, the Bush review found that the emergency response lacked structure and the CIMS framework was not consistently followed.23
3.11
Since the 2023 floods, Auckland Council's emergency response structure and CIMS functions have been clearly documented, including in the Group Plan.
3.12
Auckland Council has also invested in training and exercising so that staff understand how to apply the CIMS framework in a response.
3.13
During the 2023 floods, Auckland Council relied heavily on a pool of wider Council staff to fill CIMS functions. The Bush and Toa reviews found that staffing levels in Auckland Council's emergency response were inadequate to cope with an event of the scale of the 2023 floods, and some CIMS functions were under-resourced and lacked capability.
3.14
Since the floods, Auckland Council has increased its resourcing for specialised staff and managers associated with CIMS functions in an emergency response.24 As of July 2024, Auckland Emergency Management had a total permanent staffing allocation of 44 people (an increase of almost 30% from January 2024).
3.15
When not required for an emergency response, these staff play a role in Auckland Emergency Management's ongoing work to increase Auckland Council's emergency preparedness within their specialist areas.
3.16
Auckland Council has also invested in a programme of work to recruit and train wider Council support staff in the basics of emergency management, to increase the pool of staff Auckland Emergency Management can call on in a response.
Information for staff on what to do in an emergency response is now clearly documented
3.17
The Bush and Toa reviews found that some staff involved in the emergency response to the 2023 floods lacked a clear understanding of what to do. Roles and decision-making criteria had not been documented.
3.18
An important piece of work for Auckland Emergency Management in 2023 was to write detailed guidance for staff involved in an emergency response. This guidance included standard operating procedures for core processes and CIMS functions and clear decision-making criteria for incident escalation based on scale and severity.
3.19
Guidance for staff involved in an emergency response, including standard operating procedures, checklists, and templates, have been collated in manuals for duty teams and Incident Management Teams (IMT). The duty team manual applies until the point of "activation" (when an Emergency Control Centre is set up). From that point, the IMT handbook is used.
3.20
The duty manual and IMT handbook specify clear timeframes and instructions for review. The duty manual is reviewed every two years, and its standard operating procedures need to be reviewed every two years or after every activation of the Emergency Control Centre. The IMT handbook is reviewed every two years or after every activation.
3.21
Under the Group Plan, Auckland Council will continue to refine its guidance specific to each CIMS function to provide an easy reference for staff assigned to function desks in an emergency response.
Auckland Council has increased its emergency response communications capability
3.22
In the early response to the January 2023 floods, Auckland Council failed to communicate important information to the public and within the Council in a timely way. Poor communication between emergency response personnel and the Mayor's office was a factor in delays to the decision to declare a state of local emergency in Auckland.
3.23
The Bush review identified a range of factors that contributed to the failure of communications during the January 2023 floods. These included a lack of planning for response communications and the under-resourcing of the CIMS public information management function.
3.24
The person filling the public information management function is responsible for co-ordinating consistent, accurate, and timely communications through a range of channels. This includes ensuring that the Mayor is fully briefed.
3.25
Since the 2023 floods, Auckland Emergency Management has employed a senior communications specialist and a senior digital content specialist. This means there are now dedicated Auckland Emergency Management communications staff to assist Auckland Council's wider corporate communications team in carrying out the public information management function in an emergency response.
3.26
Outside of an emergency response, the roles of the senior communications specialist and senior digital content specialist include developing and implementing Auckland Emergency Management's communications and public awareness strategies.
3.27
This will involve a new emergency preparedness website and social media platforms, due for launch in October 2024, to improve Auckland Emergency Management's ability to keep the public informed before, during, and after an emergency event.
Auckland Council has prepared guidance for the Mayor and elected members on their roles and responsibilities in an emergency response
3.28
The Mayor and elected members have an important role during an emergency response. Under the Civil Defence Emergency Management Act 2002, the Mayor has a specific legislated role in declaring a state of local emergency, on the advice of the Group Controller.25 In addition, the Mayor has an important role in reassuring the community as the "public face" of Auckland Council.
3.29
The Bush review found that the Mayor had not been fully briefed on his emergency management roles and responsibilities before the 2023 floods, and had not met key emergency response personnel. Both the Bush and Toa reviews also identified a general need to support elected members to understand their roles and responsibilities in an emergency response.
3.30
In 2023, Auckland Emergency Management developed guides for the Mayor and for elected members on their roles and responsibilities during an emergency response.
3.31
The Mayor's guide includes a clear description of the Mayor's roles and responsibilities during an emergency, and clearly documents the processes for communications between the Mayor's office, response personnel, elected members, and other stakeholders. The Mayor's guide also contains a standard operating procedure and templates for declaring a local state of emergency.
3.32
The elected members' guide includes information on the role of elected members across the four "R"s of emergency management, how elected members can stay informed in an emergency, and guidance on communicating with the public.
3.33
We were told the current Mayor and Deputy Mayor have received a full briefing based on these guides, and that emergency management will form part of the induction packages for future Mayors to ensure that they are well briefed before an emergency happens. The Mayor and Deputy Mayor have also received emergency-specific media training.
Auckland Council has increased emergency management training for its staff
3.34
The Bush and Toa reviews both highlighted the need for more emergency management training in Auckland Emergency Management and the wider Council. This included more specialised controller and crisis leadership training for the Group Controller and their "alternates" (the pool of senior managers who can carry out the Group Controller role).
3.35
In 2023, Auckland Emergency Management carried out a comprehensive learning needs assessment for all its staff. This informed the development of a capability plan for Auckland Emergency Management staff, emergency response support staff across the Council (known as Auckland Council Emergency Staff), and the Group Controller and their alternates.
3.36
Auckland Emergency Management training records show that most staff with emergency response roles have completed foundational emergency management training. The Group Controller and their alternates have met all core CDEM Group Controller training requirements, including crisis leadership training.
3.37
Auckland Council has also expanded the availability of emergency management training to staff in the wider Council. In April 2024, Auckland Emergency Management launched an online learning module about emergency response and recovery. All permanent new Council staff are now required to take this module.
There is now a regular exercise programme to improve emergency preparedness
3.38
All three reviews recommended that Auckland Council implement a regular schedule of exercising, including exercises involving other organisations, to give emergency management staff the opportunity to test and refine their skills outside of a major emergency response.
3.39
In 2023, Auckland Emergency Management hired a dedicated senior staff member to lead regular exercises.
3.40
In October 2023, Auckland Emergency Management organised a major exercise, based on the scenario of a tsunami event, to ensure that response staff were familiar with processes and procedures for tsunami alerts and how to set up and operate the Emergency Control Centre. The exercise involved Auckland Emergency Management staff, Auckland Council Emergency Staff, and representatives from external organisations.
3.41
In March 2024, new members of the Auckland Emergency Management duty team took part in an exercise based on a severe weather event (tornado) scenario. Auckland Emergency Management staff also participated in Rū Whenua, the 2024 national emergency management exercise organised by NEMA.
3.42
Auckland Council provided us copies of a report on the October 2023 tsunami exercise, including a summary of feedback and suggestions for improvement, as well as a copy of an "exercise lessons learned" tracker.
3.43
We also viewed a copy of Auckland Emergency Management's 2024 exercising calendar. This calendar, together with Auckland Emergency Management's 2024/25 work programme and the Group Plan, provide evidence of Auckland Council's plans to implement an ongoing schedule of regular exercises from 2024 to 2029.26 These exercises will involve the wider Council, the Mayor's office, and other organisations.
Auckland Council has invested in information technology to improve its situational awareness and information-sharing in an emergency
3.44
The Bush and Toa reviews found that Auckland Emergency Management's situational awareness was poor, particularly during the January floods. Emergency response staff lacked the tools to rapidly pull together and analyse information from multiple sources. As a result, the Council was slow to realise the scale and severity of the flooding, which impeded its decision-making and communications.
3.45
The Bush and Toa reviews recommended that Auckland Council invest in information technology to improve its situational awareness and information-sharing in an emergency response.
3.46
In 2024, Auckland Emergency Management acquired D4H, a specialised emergency management software system that is designed to rapidly collate a wide range of information sources. D4H is used by CDEM Groups across New Zealand.
3.47
Auckland Emergency Management has also acquired:
- geographical information software, ArcGIS Online, to improve Auckland Emergency Management's ability to map emergency events as they unfold; and
- the Survey123 platform, which allows external organisations to input and access needs assessment data to ensure that a welfare response in an emergency is based on up-to-date and accurate information.
3.48
Auckland Emergency Management told us that D4H, ArcGIS Online, and Survey123 are now available for use in an emergency response. Once Auckland Council has finalised privacy protocols for these systems, Auckland Emergency Management will also have access to them for non-emergency activities such as readiness and risk reduction. Auckland Council told us that this work is close to completion.
Auckland Council is working to collect data on Auckland-wide Civil Defence Centres
3.49
During the 2023 floods, the opening of Civil Defence Centres to support people displaced from their homes was delayed due to lack of information on the status and accessibility of Civil Defence Centres. Few people involved in the running of Civil Defence Centres and community emergency hubs had received any prior training.
3.50
The Bush and Toa reviews recommended that Auckland Council prepare a database of Civil Defence Centres across Auckland that can be immediately activated in an emergency and includes information about accessibility and supplies. We viewed a copy of a draft database showing information and contact details for about 90 Civil Defence Centres and community emergency hubs across Auckland.
3.51
Once finalised, Auckland Council will make this information publicly accessible through an interactive map on Auckland Emergency Management's website so Aucklanders can access up-to-date information on the location of Civil Defence Centres and whether they are open or closed.
Auckland Emergency Management is working with local boards to improve community readiness for an emergency
3.52
The Bush and Toa reviews found that many local boards were unprepared to support their communities in the 2023 floods, and that Auckland Council's 21 local boards were not used effectively as a conduit of information to and from local communities.
3.53
In 2023, Auckland Council significantly increased Auckland Emergency Management's community engagement capacity by establishing seven new senior community planning and readiness advisors.
3.54
These advisors work with local communities and local boards to educate and support them to become better prepared in an emergency, as well as liaising between local boards and Auckland Emergency Management. They have been working closely with newly appointed emergency management leads from each of the local boards to help them prepare readiness and response plans.
3.55
The purpose of the local board readiness and response plans is to provide local boards and the public with a source of easily accessible information on what to do in an emergency and emergency preparedness more generally. These plans will be tailored to each local board area. Auckland Emergency Management provided us with a copy of its schedule of workshops for local boards to develop and adopt their plans.
3.56
Auckland Emergency Management has also created a forum for local board members to ask questions, receive advice and training, and share their experience with other local boards.
3.57
Local board members we spoke to were positive about the work of Auckland Emergency Management's advisors. They also valued having a dedicated contact (their senior community planning and readiness advisor) who they can go to for all emergency management matters.
3.58
Auckland Emergency Management expects to complete its work to support Auckland's 21 local boards to develop their own readiness and response plans by the end of 2024. Auckland Council told us that it is committed to building enduring relationships with local boards, and this will continue after local board readiness and response plans are complete.
The Prioritised Plan actions are nearly complete
3.59
Auckland Emergency Management reported to the CDEM Committee in its June 2024 meeting that 25 of the 29 Prioritised Plan actions were complete.
3.60
The four remaining actions were:
- "Contingency planning focused on high priority hazards" (Prioritised Plan action 3);
- "Review Welfare function Standard Operating Procedures to incorporate findings of response reviews and debriefing programme" (Prioritised Plan action 10);
- "Work with local boards to identify and ready optimal locations for Civil Defence Centres" (Prioritised Plan action 19); and
- "Expand work to support marae with resilience strategies" (Prioritised Plan action 20).
3.61
Since June 2024, Auckland Council has also completed Prioritised Plan action 10. The Council has finalised a comprehensive guide for welfare functions, such as how to carry out needs assessments and how to set up and run Civil Defence Centres.
3.62
Auckland Council told us it intends to complete the remaining Prioritised Plan actions as part of its 2024/25 work programme. For example, the Council's work with local boards to identify locations for Civil Defence Centres is due to be completed in 2024.
3.63
Action 27 of the Prioritised Plan (which states that the Council will refresh its public website to improve its communications) also remains unfinished at the time of writing this report. However, Auckland Council told us that a new Auckland Emergency Management website and social media platforms are scheduled for launch in October 2024 (see paragraph 2.26).
3.64
We note that there is strong alignment between many Prioritised Plan actions and the actions in the Group Plan, showing Auckland Council's continuing commitment to addressing review recommendations. For example, the Council has completed a Prioritised Plan action to provide emergency management training to staff, and ongoing delivery and enhancement of staff training will be a continuing action under the Group Plan.
Most review recommendations have been addressed
3.65
Our analysis of the Prioritised Plan and Group Plan progress to date indicates that 38 recommendations have been fully addressed, and that Auckland Council has started work to address most of the remaining 13 review recommendations (see Figure 2).
3.66
Appendix 1 sets out our assessment of Auckland Council's progress against each of the 51 review recommendations.
Figure 2
Status of the 51 recommendations in the three reviews, as at September 2024
| Addressed | Work has started | Yet to start | Recommendations expected to be addressed through Auckland Emergency Management's work programme for 2024/25 |
|---|---|---|---|
| 38 | 11 | 2 | 11 |
3.67
Auckland Council provided us with planning documents indicating that work to address 11 of the remaining recommendations will be complete by mid-2025 (the end of the first year of the time period covered by the Group Plan).
Addressing the remaining recommendations will require ongoing focus and investment under the Group Plan
3.68
We consider that all 51 recommendations will be addressed by the work set out in the Prioritised and Group Plans and Auckland Emergency Management's 2024/25 work programme.
3.69
Many Prioritised Plan actions, although complete, are also aligned to ongoing work in the Group Plan.
3.70
For example, a Prioritised Plan action to prepare a stakeholder management framework is now complete, but the more difficult and time-consuming task of building and maintaining relationships with stakeholders remains a work in progress under the Group Plan.
3.71
Similarly, some review recommendations relate to actions that are ongoing and will require sustained investment and prioritisation by Auckland Council to continue to be met.
3.72
Auckland Council made significant progress in completing Prioritised Plan actions in the year after the 2023 floods. However, considerable work remains to address the recommendations of the three reviews through the Group Plan for 2024 to 2029.
21: See New Zealand Government (2019), Coordinated Incident Management System (CIMS): Third Edition, at civildefence.govt.nz.
22: The functions are control, safety, intelligence, planning, operations, logistics, public information management, and welfare and recovery. The Group Controller (or the "alternate" for their role) is responsible for directing the overall response.
23: This was also a finding of an earlier review by Rimu Road Consulting Limited, Review of the response to the Auckland storm of 10 April 2018. See "Independent review of April storm response to be received by committee" at ourauckland.aucklandcouncil.govt.nz.
24: This has included appointing new roles specialising in public information management, welfare, exercises and scenario planning, and community readiness.
25: A declaration of a local emergency gives a CDEM Group special powers to respond.
26: This will include monthly duty team exercises, twice-yearly exercises involving Auckland Emergency Management, wider Council staff, and the Mayor, and annual exercises involving the CDEM Group and external organisations.