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02 Co-operation

This chapter to be reviewed by November 2007

Summary

• Strategic Co-ordinating Groups ( SCGs) lie at the centre of local co-operation and should attract the most senior level of representation.
• The SCG business and administration should be designed to allow it to meet its purpose, aims and objectives examples of which are commended to responders.
• Leadership of SCGs is important. Leadership for routine business and during emergencies should be clear.
• Other forms of co-operation should enhance consistency and co-ordination in preparation for wide area emergencies. The identification of a lead responder can increase the effectiveness and efficiency of preparation.

Introduction

2.1 This Chapter provides guidance that should assist responders to develop sound local partnerships of all who have a part to play in preparing for effective response to emergencies. It complements Chapter 2 of Section 2 of Preparing Scotland.

2.2 The partnerships will be founded on the Strategic Co-ordinating Groups established by the Civil Contingencies Act. However, given the significant part that can be played by the voluntary sector and others, the partnerships may also embrace a wider group of organisations at the appropriate level. For example, WRVS and the Red Cross may work with local authority social services and others in sub-groups preparing to open rest centres and deal with the needs of displaced people, and local businesses might work with the emergency services regarding evacuation plans for a shopping centre.

2.3 Co-operation will be improved if all partners have an open and supportive approach to their work. Successful response to emergencies in Scotland has demonstrated that joint working and support can resolve very difficult problems that fall across organisational boundaries. Large scale events have shown that single organisations acting alone cannot resolve the myriad of problems caused by what might, at first sight, appear to be relatively simple emergencies caused by a single source.

The Strategic Co-ordinating Group ( SCG)

2.4 The SCG lies at the centre of the formal co-operation process at local level.

2.5 The SCG works alongside other elements of the multi agency planning framework at the local and central government levels. ¹ However, the framework is generally not a hierarchy. The SCG is not subordinate to central government, information and support should flow in both directions. For example, SCGs may pass issues with wider strategic implications for Scotland to the Scottish Executive and its Emergency Room if opened. Likewise, requests for information and advice maybe cascaded downwards.

2.6 Because of its importance the SCG should attract a sufficiently senior level of representation. For example, local authority representatives should be at Chief Executive or Deputy Chief Executive levels and police representatives should be Chief Constables or their deputies. Because its discussions are strategic the SCGs should meet relatively infrequently and the meetings should be thoroughly prepared so that the time of senior officers is well used.

2.7 Membership of the SCG is required for Category 1 and 2 responders under the Civil Contingencies Act. It should be noted that "general Category 1 and 2", UK responders, have a formal role in preparation, response and co-operation in Scotland although they are agencies of, or report to, UK Government. Scottish responders should be clear about the implications for general Category 1 or 2 responders and their local partners when working together in Scotland. Similarly, Category 2 responders may have responsibilities and reporting arrangements particular to their regulatory regimes that may affect local management. For example, in the event of major disruption of gas and electricity supplies, arrangements are in place for UK level management of the industry response.

2.8 It is critically important that the co-operation process is well organised and achieves its aims. The SCG's meetings should have a clear agenda and papers should to be circulated sufficiently in advance to allow for proper discussion. A clear record of meetings should be kept and minutes circulated promptly.

2.9 Regardless of the way in which organisations are represented in the SCG process, all papers must be copied to all Category 1 and Category 2 responders that are members. This will allow members to make the right decisions about participation and for non-attending bodies to be properly engaged in the SCG process through sectoral representatives or by written submission if desired.

2.10 Co-operation is vitally important at all stages of preparation and response. However, it is not simply a matter of organisations and individuals working together, they must work towards a common end. Their work can take place at different levels and at different times in the cycle of preparation, response and recovery but it should have a common purpose, aims and objectives that should be set at the strategic level.

Purpose, aims and objectives for SCG co-operation

2.11 The following purpose, aims and objectives are commended for Strategic Co-ordinating Groups and their work.

Purpose

2.12 The purpose of the [area] Strategic Co-ordinating Group is to establish and maintain a formal partnership as an aid to planning for the effective management of response to emergencies and to ensure that the partners in its continuing development and implementation are fully prepared to respond to emergencies at all times.

Aim

2.13 The [area] Strategic Co-ordinating Group aims to ensure effective management of multi-agency response to emergencies which may have a significant impact in [area]. It will do this by promoting sound partnership working, developing a unified emergency management framework for [area] and ensuring that all partners are prepared for joint response to any emergency at any time.

Objectives

2.14 The Strategic Co-ordinating Group's objectives are to:

• establish a meaningful partnership dedicated to promoting effective management of emergency response.
• establish an integrated emergency management framework for preparation and response;
• verify that all partners' plans can both support and complement their partners' and are integrated with the Strategic Co-ordinating Group's arrangements;
• agree strategy and policy relating to [area]'s preparedness and response to emergencies;
• provide clear direction and leadership in developing, maintaining and continuously improving local emergency arrangements;
• measure assessed risks against local arrangements for response, remedying any shortcomings identified;
• ensure that all individuals with a part to play in response to emergency are aware of local arrangements and have trained and exercised in them before an emergency occurs;
• act as a focal point for local civil protection activity and maintain effective working relationships with central government and neighbouring Strategic Co-ordinating Groups;
• ensure effective representation at the Strategic Co-ordinating Group Forum meetings; and
• as far as it is able, to ensure that appropriate resources are made available to meet these objectives.

Leadership

2.15 There are two aspects of leadership, chairing the SCG's meetings and administering its work.

Chairing routine business meetings

2.16 The task of chairing the SCG's regular business meetings does not necessarily need to fall to a particular Category 1 responder. The choice of Chair is a matter for local determination. However, it is important to make the distinction between chairing the meetings of the SCG in preparation for emergency and in response. A number of broad principles should determine the choice of Chair for routine meetings. The chair should be able to:

• take on the job on a permanent basis;
• speak with authority about the Group's area;
• speak with authority about civil protection issues because of involvement in strategic-level exercises and other events; and
• commit sufficient time to prepare fully for the SCG's meetings.

Chairing meetings during an emergency

2.17 In many emergencies the lead role in co-ordinating local response to an emergency falls to the police in which case it may be appropriate, at that time, for the Chief Constable to chair the SCG meetings. There may be some emergencies in which the role of the police is largely supportive. For example, large scale health emergencies may be led by the health services and supported by the police and other agencies. In that case it may be decided that the health service should Chair meetings of the SCG.

2.18 Where possible the choice of Chair of the SCG during a particular emergency or an emergency of a particular kind, should be agreed in advance. It may be beneficial for the Chief Constable to chair the SCG's first meeting in response to sudden onset emergencies and clarify the lead roles at that meeting. It will be appropriate for the SCG to identify a different Chair as the nature of a response changes. For example, the police may Chair the SCG in the immediate response to emergency and the local authority may be best placed to Chair the longer-term community recovery. The SCG's arrangements should contain a procedure to allow identification of its Chair at appropriate times during an emergency.

2.19 Category 1 responders should be clear that chairing the meetings of the SCG is not directly related to the role of the "lead responder" identified through the Regulations. The role of the lead responder relates to particular duties under the Regulations and although its work may influence the choice of Chair of the SCG during response to emergencies it is not a requirement that the lead responders chairs the SCG.

Secretarial support for routine meetings

2.20 The administrative/secretarial support role is crucial in ensuring that the SCG performs effectively at its normal meetings. Choice of secretary is a matter for local determination. It includes a number of key tasks:

• fixing the dates and times of meetings;
• agreeing the agenda and attendance with SCG members;
• co-ordinating the production of any discussion papers and presentations for meetings;
• briefing the Chair;
• taking the minutes of meetings;
• following up matters arising and action points;
• disseminating papers before and after the meeting to both Category 1 and 2 responders and other bodies which are part of the SCG;
• ensuring that meetings of the various sub-groups are:
  • effectively organised and recorded;
  • scheduled to fit with the meeting cycle of the SCG; and
  • that they are reported to the SCG.

2.21 The task of providing administrative/secretariat support to the SCG may fall to a single organisation, to a number of partners acting together, or to a Co-ordinator whose post is supported by the Scottish Executive. A number of principles should help to determine the choice of secretariat. Those taking up the task should:

• be able to take on the job on a permanent basis;
• be of a level of seniority or competence to support the chair at meetings of the strategic-level forum;
• have the back-up of an administration team within their organisation or from a partner; and
• be competent to organise, or to support, officers from other organisations, or their own, in administering the work of the SCG's sub-groups.

It is important that the Chair and Secretary of the SCG maintain a close working relationship.

Secretarial support at a time of emergency

2.22 The secretarial role at a time of emergency should form part of the multi-agency planning for response and be appropriate to the emergency and its impact.

Conduct of business

2.23 The SCG is established as a formal process by which Category 1 and 2 responders co-operate locally. Its objectives, as described above, relate to partnership working, mutual support and close integration of individual organisations' preparation. To achieve them the SCG should seek to develop sound working relationships and to harmonise its activities. This will be achieved through consensus and will, at times, require a degree of compromise in attempting to reach an accord.

2.24 Close working is supported by awareness of roles and responsibilities and an understanding of the environment in which the work of responders is set. Whilst these are recognised at a strategic level, effort should be taken to develop awareness and understanding at all levels, in sub-groups and amongst those who may need to work together.

2.25 The SCG is not a statutory body with binding decision making powers. It draws it strength from the willingness of its members to work together in a co-operative manner as required by the Act. The need for local standing orders is a matter for local determination. However, all responders should agree the way in which the SCG will conduct its business. For example, how the agendas are set for meetings, how discussion papers should be disseminated or how quickly minutes will be circulated for action. The way in which the SCG works will be studied by Audit Scotland and the way in which individual category 1 and 2 responders co-operate within the SCG process will be subject to normal management audit.

Sub-groups

2.26 The time constraints on the SCG and the strategic level of its discussions will necessitate the establishment of sub-groups to take forward particular tasks. Sub-groups may have a long- term role or be established on a "task and finish" basis. The role of sub-groups may be to examine action points from the SCG, to take forward particular projects and to feed pertinent information for discussion and endorsement to the SCG.

2.27 Some formal relationship with existing standing groups, such as those that deal with COMAH or REPPIR regulations, may be sought. A formal relationship with other relevant existing standing groups, that do not themselves become part of the SCG structure, should be established and maintained. An important consideration is that the SCG receive reports from those of its members involved in the activities of these separate emergency planning groups, not that they be drawn directly under its umbrella.

2.28 Each sub-group should have a clearly defined purpose, aim, objectives and timescale for its work and the SCG should appoint a Chair and ensure appropriate administrative support.

2.29SCG members who do not attend the main group (whether because they are effectively represented by another responder or because they are Category 2 responders who do not routinely attend under the "right to attend, right to invite" principle) should be encouraged to take part in the subgroups. However, representation at this level is also permitted.

2.30 A sub-group should comprise people with a particular skill or expertise in its work area. Great care should be taken in identifying the members of a sub-group. Senior managers should be involved in the decisions. Again a number of principles may assist in deciding on the membership of a sub-group:

• members should possess the skills, expertise and professionalism appropriate to the task and the functions it involves;
• plans should be developed, produced, maintained and owned by those who will use them;
• to ensure closer integration those involved should be good communicators able to promote their work both within their organisations and externally, as required; and
• members need not be drawn exclusively from the statutory Category 1 or 2 responders, relevant organisations from the community, the voluntary or business sectors may have important parts to play.

2.31 Decisions about the number and composition of subgroups should be made locally. Nevertheless, there are several examples of subgroups that might be useful:

• General/Tactical working group: This group would replicate the broad membership of the SCG and discuss, in more detail, proposals for the SCG's decision or endorsement. It would provide a process at the 'working level' through which the integration of multi-agency activity could take place.
• Risk group: This group would lead the work to develop and maintain the multi-agency Community Risk Register and liaise with the Scottish Risk Assessment Group. ²
• Capabilities groups: These groups would lead the work to develop generic capabilities ³ within the overall generic planning framework. For example, groups might be created on dealing with fatalities, site clearance or decontamination.
• Area groups: These groups could be established within large SCG areas to take heed of the interests of smaller administrative areas. For example, a large police area might be made up of a number of Council areas that would naturally work closely together or have broadly similar interests. Membership would be determined locally.
• Specialist groups: Groups would bring together organisations with an interest in a particular aspect of civil protection. Examples might include welfare support for victims, media relations or chemical, biological, radiological and nuclear hazards ( CBRN), bereavement counselling or faith communities.
• Existing standing groups: In many areas groups may exist to deliver certain aspects of civil protection. Category 1 responders may agree that the most appropriate way for these groups to operate would be as formal subgroups within the SCG structure.
• Project groups: Groups could be formed on an ad hoc, temporary, basis to bring together Category 1 and 2 responders to develop a multi-agency approach to a particular short-term priority. Examples might include a particular multi-agency exercise, a specific large public event, or planning to respond to an urgent and unforeseen new risk.

2.32 Care should be taken to ensure that the number of subgroups is kept to a reasonable level and that each has a clear purpose connected to the overall strategic priorities set by the SCG. Particular care should be taken when proposing groups which might be expected to be mainly made up of Category 2 responders or other organisations engaged in response that are not covered by the Act.

2.33 Sub-groups may be led by the most appropriate responder and may be established to support an identified formal lead responder discharge its duties.

Other forms of co-operation

2.34Bi-lateral and cross border co-operation - Although the Act lays down duties regarding bi-lateral co-operation, that should not be seen to restrict responders working closely together outwith its provisions. For example, it would be anticipated that adjacent local authorities in differing police force areas would co-operate in matters of mutual interest in the same way that their respective SCGs would. In this way good practice can be identified and shared across boundaries.

2.35Joint discharge of functions - In some instances Category 1 responders may wish to go beyond bi-lateral co-operation and enter into formal joint arrangements with other Category 1 responders. Care should be taken to ensure that joint arrangements have taken into consideration the needs of all partners which might have an interest in the arrangements being made. Failure to accommodate the needs of all partners will prove both wasteful and inefficient and ultimately will undermine the benefits of local partnership working.

2.36Nomination of a lead responder - Given that the main duties under the Act fall equally to Category 1 responders there is a potential for duplication of effort, lack of co-ordination and confusion. Not only would this be ineffective and inefficient, but it may also undermine the confidence of the public who may, for example, receive warnings or prior information from a number of responders.

2.37 Where civil protection duties fall locally on more than one Category 1 responder they may agree that one shall take the lead role or perform a duty on behalf of the other responders. Category 1 responders may consider identifying a lead responder for particular duties but must consider the matter in relation to the duty to warn and inform the public.

2.38 The identification of a lead responder relates to functions and duties under the Act and does not require the lead responder, necessarily, to take the lead in response to an emergency. For example, a lead responder may lead in the activity to make and maintain a specific plan in which the lead may taken by another responder when the emergency occurs. For example, the police may lead in preparing arrangements to warn and inform the public and the arrangements could identify different responders to lead for different emergencies (e.g. health services for infectious outbreaks, SEPA for environmental pollution).

2.39 The Category 1 responder identified as lead responder is under no obligation to accept lead responder status. However, failure to do so in relation to a function in which it has a particular skill or expertise may be measured against its performance of its duty to co-operate.

The Strategic Co-ordinating Group Forum

2.40 The Scottish Executive has established a SCG Forum. The Forum has no decision making powers, it is established as a place where information can be shared and the views of its members canvassed.

2.41 The Forum will consider:

• identifying and disseminating good practice;
• promoting projects for the development of good practice;
• reducing the duplication of effort and abortive work;
• considering proposals for the improvement of Scottish resilience;
• informing and contributing to action programmes for the development of Scottish contingency planning;
• co-ordinating exercises and training; and
• taking forward lessons identified from exercises and response to emergencies.

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