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Governing Body
23 March 2023 - CONFIDENTIAL
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Recovery
from January Floods and Cyclone Gabrielle
File No.: CP2023/02800
Te take mō te
pūrongo
Purpose of the report
1. To
update the Governing Body on the transition from response to recovery from the
January Flooding and Cyclone Gabrielle, including status, key issues and
priorities, and mobilisation of the Recovery Coordination
Office for Tāmaki Makaurau.
2. To
approve an upper limit of up to $3 million of unbudgeted costs
in the current 2022/2023 financial year to support the operation of the
Recovery Coordination Office, preparation of the Recovery Plan, retention of
specialist expertise (for example Geotech and other engineering advice),
workforce and other resourcing.
Whakarāpopototanga matua
Executive summary
3. This
the first of monthly updates to the Governing Body on recovery from the impacts
and consequences of the January and February floods and Cyclone Gabrielle.
4. Flooding
in late January and early February and then Cyclone Gabrielle meant Auckland
experienced three natural disasters within a period of three weeks, culminating
in declarations of a local State of Emergency and, for just the third time
ever, a State of National Emergency.
5. The
initial response to the floods was broadened to respond to the impacts of
Cyclone Gabrielle making the response to both events a continuous operation.
6. People
displaced from homes, buildings unable to be accessed, land instability,
limitations on road access, limited infrastructural service in specific areas,
and the disruption to communities, whānau and people’s daily lives,
is ongoing.
7. Under the Civil Defence Emergency Management Act 2002 (the Act),
recovery means the coordinated efforts and processes to bring about the
immediate, medium, and long-term holistic regeneration and enhancement of a
community following an emergency. The required recovery addresses the
impacts and consequences of the floods and Cyclone Gabrielle.
8. Recovery
Managers have been appointed and the transition from response to recovery has
commenced. Current areas of focus include the continuing
emergency-type work for isolated and priority communities, work to mobilise and
resource the Recovery Coordination Office and operationalise recovery.
9. The
Recovery Coordination Office for Tāmaki Makaurau has been designed and the
pathway for its mobilisation established. The office is based on the roles,
responsibilities, principles and disciplines of portfolio management. The
office functions and subfunctions are interwoven with three pou: natural and
built environment, community and social wellbeing and economic growth. The pou
align with central government workstreams and were designed to drive
coordinated outcomes for iwi Māori and communities of Tāmaki
Makaurau.
10. The recovery
will be challenging. Immediate and ongoing challenges have been identified
including establishing and maintaining the recovery effort, land stability,
resilience, risk reduction, and functioning and resources.
11. The scale of
these challenges is indicated by the Severe Weather Emergency Legislation Bill
extending time periods for exempting for certain emergency activities from
consenting under the Resource Management Act 1991. The government’s
review of legislation to adapt and build resilience to climate change,
including the Three Waters Reform, repealing and replacing the Resource
Management Act 1991 with three new pieces of legislation, including the Climate
Adaptation Act are also relevant. The Recovery
Coordination Office and a team from the Chief Planning Office will work
collaboratively on matters related to the “Report back on the scope of
work: flooding impacts, implications and improvements” (PEPCC/2023/25).
12. The report seeks Governing Body approval for an upper limit of up to
$3 million of unbudgeted costs in the current 2022/2023 financial year to
support the operation of the Office, the preparation of the Recovery Plan,
retention of specialist expertise (for example Geotech and other engineering
advice), workforce and other resourcing.
13. The Governing
Body will be provided monthly reporting with the next update at the 27 April
Governing Body meeting.
Ngā tūtohunga
Recommendation/s
That the Governing Body:
a) Receive
this update.
b) Approve
an upper limit of up to $3 million of unbudgeted costs in the
current 2022/2023 financial year to support the operation of the Recovery
Coordination Office, preparation of the Recovery Plan, retention of specialist
expertise (for example Geotech and other engineering advice), workforce and
other resourcing.
Horopaki
Context
Governing Body updates
14. Given
the scale of the recovery and public interest from communities across the
Auckland region it is considered appropriate to provide specific monthly
updates on the recovery to the Governing Body.
15. As
the first of the updates to the Governing Body, this report outlines the
transition to recovery, status, issues and priorities, and mobilisation of the
Office.
January Floods and February Cyclone Gabrielle
16. A
local State of Emergency was declared during the record-breaking rainfall event
on 27 January 2023 which impacted almost the entire Auckland region causing
widespread flooding and landslips. Heavy rainfall periods through to early
February caused further flooding and landslips. People were evacuated from
flooded properties and there were four confirmed deaths. There was significant
damage to housing, infrastructure, land and utilities. The State of Emergency
was extended to 10 February 2023.
17. Monitoring
of the path and progress of tropical Cyclone Gabrielle forecast a deep system
would pass over the top of the North Island, including over or near Auckland.
On Thursday 9 February, the State of Emergency was extended a further seven
days until Friday 17 February 2023.
18. The
worst of the cyclone was experienced over Monday and Tuesday (13 and 14
February), with high winds, fallen and damaged trees, extensive power outages,
and localised flooding and slips. West coast communities were isolated, homes
across the region made uninhabitable, and infrastructure suffered further
damage. There were two further fatalities. Ground movement and impaired
services from damaged infrastructure continues to have ongoing impacts on
communities.
19. Cyclone
Gabrielle had significant impacts across six regions of New Zealand including
Auckland. A state of National Emergency was declared on 14 February 2023 for
the Northland, Auckland, Waikato, Bay of Plenty, Tairāwhiti and Hawkes Bay regions, the latter experiencing large areas of
devastation. This is only the third time a National Emergency has been
declared.
20. Thunderstorms
on 24 February bought localised downpours across parts of Auckland’s
northern and western areas, causing further flooding and slips.
21. The
response underway to the unprecedented rainfall of 27 January was broadened in
scope to respond to the impacts of Cyclone Gabrielle
and subsequent localised downpours.
22. A
more detailed summary of the response to floods and Cyclone Gabrielle is set
out in the Response to Recovery Transition Report (see Attachment 1).
Current Status
23. On
23 February 2023, the Civil Defence and Emergency Management Committee (CDEMC/2023/5):
· appointed Phil Wilson as the Interim Group Recovery Manager for the
January Floods and Cyclone Gabrielle while a recruitment process is completed
· established a selection panel to expedite the selection of a Group
Recovery Manager for the January Floods and Cyclone Gabrielle.
· delegated the authority to appoint a Group Recovery Manager to the
Governing Body.
· appointed Mace Ward as Deputy Recovery Manager.
24. The
selection of a longer-term Group Recovery Manager is underway.
25. The
Minister for Emergency Management issued a National Notice of Transition period
for Northland, Auckland, Waikato regions and Tararua Districts on 3 March to
enable seamless transition from response to recovery. The National Transition
Notice was extended to Tairāwhiti and Hawke’s Bay Regions
and the Tararua, Masterton, Carterton and South Wairarapa Districts on 13 March.
26. The
Recovery Transition Report was signed by Mace Ward as Group Controller and Phil
Wilson as Interim Group Recovery Manager on 3 March 2023, commencing the
transition to recovery.
27. Under
the Act, recovery means the coordinated efforts and processes to bring about
the immediate, medium and long-term holistic regeneration and enhancement of a
community following an emergency. Recovery activities to address the
consequences of emergencies include:
· the assessment and ongoing monitoring of the needs of a community
affected by the emergency
· the co-ordination and integration of planning, decisions, actions,
and resources
· measures to support—
o the regeneration, restoration, and enhancement of communities across
the four environments (built, natural, social, and economic)
o the cultural and physical well-being of individuals and their
communities
o government and non-government organisations and entities working
together
· measures to enable community participation in recovery planning
· new measures—
o to reduce risks from hazards
o to build resilience. (From section 4).
28. An
overview of the current state is set out in Attachment 2. Current areas of
focus include the emergency response-type work in respect of isolated and
priority communities, work to mobilise and resource the Recovery Coordination
Office and operationalise recovery.
Tātaritanga me ngā
tohutohu
Analysis and advice
Issue and priorities
29. The
Response to Recovery Transition Report identifies a range of impacts and the
following priorities for recovery:
· continuing to support impacted communities, ensuring no one falls
through the gaps
· supporting impacted businesses, sectors and wider economic impacts
· restoration of the natural environment
· enabling remediation of damaged properties and infrastructure.
30. The
report’s discussion of priorities and the transition to recovery emphasises
partnership with iwi and Māori, and refers to partnerships with Pasifika,
culturally and linguistically diverse groups, agencies and community
organisations.
31. Work
undertaken since the Transition Report identified the following immediate
issues currently in focus as well as some longer-term issues that are expected
to arise.
Recovery Coordination Office
32. Standing
up the Recovery Coordination Office including the development of workstreams
and programmes is an immediate priority. The Office’s design is based on
sound portfolio management principles and disciplines to provide integration
across recovery, business as usual and change. Under the Group Recovery
Manager, the Office will lead coordination through its core functions and sub
functions interwoven with three pou: natural and built environment, social and
community well-being and economic growth. The pou align with central
government workstreams and were designed to drive coordinated outcomes for iwi
Māori and communities of Tāmaki Makaurau. They are
set out below:
33. Further
issues and priorities identified to date include:
· resourcing critical roles (particularly for engineering and
geotechnical, communications and engagement, social and community wellbeing)
· integrating with government architecture which is being developed
· ensuring the Recovery Whānau (council group, government
agencies, and key partners) equitably engage in the design, coordination, and
delivery of recovery efforts
· endorsement of a Tāmaki Makaurau Recovery Framework across all
partners from which to base recovery efforts
· delivering a specialised contact centre supporting property owners
to navigate the Rapid Building Assessment remediation process
· continuing to incorporate holistic recovery support into a specialised
Recovery Coordination Office contact centre
· rapid update channels created to resolve urgent customer queries and
manage complaints
· scoping a ‘Case Management’ style approach for affected
Aucklanders within recovery, including supporting Insurance Council of New
Zealand and members to provide a coordinated service for impacted individuals
and whānau
· understanding community needs to inform the scope and
responsibilities for community support, exploring the concept of an
accommodation cluster and a navigator service in support of the social and
community wellbeing pou
· development of Communications, Community Engagement, and operational
Recovery Action Plans
· integration of data and information (including geospatial, welfare,
economic, infrastructure, environment) to inform decision-making, financing and
reporting.
34. The
Recovery Coordination Office is always working on clarifying roles,
responsibilities and funding between Auckland Council, central government and
other participants.
Geotechnical issues
35. There
were many landslips and remediation can be complicated, costly, have high
information requirements and legal requirements, involve risk and require
extensive negotiation.
36. Responsibilities
for remediation of landslides crossing property boundaries are shared amongst
adjoining landowners. Communications may be challenging, and arriving at
mutually acceptable solutions can be made difficult by unclear
responsibilities, costs, questions over insurance cover or Earthquake Commission
contributions, or where an appropriate solution for one landowner is not
appropriate for their neighbours. For example, a public park might only need
debris clearing but an adjacent private house might need a retaining wall.
37. Challenges
are anticipated where public demand for fast and full restoration of
infrastructure increases demands on resources (financial or human) and
potentially conflict with increasing resilience or long-term risk reduction.
Consideration will need to be given to properties in locations that may not be
suitable for long-term occupation. Further discussion will provided in future
progress reports.
38. The
scale of these challenges is illustrated by the Severe Weather Emergency
Legislation Bill, which among other things extends time periods for the
exemption of certain emergency activities in certain areas from Resource
Management Act 1991 consent processes under existing provisions. The extension
relates to Cyclone Hale, Cyclone Gabriele and the heavy rains that impacted Northland,
Auckland, Waikato and Bay of Plenty from 26 January to 3 February
2023.
39. On
3 August 2022 the government released ’Urutau, ka taurikura: Kia tū
pakari a Aotearoa i ngā huringa āhuarangiAdapt and thrive: Building a
climate-resilient New Zealand – New Zealand's first national adaptation
plan.’ It includes strategies, policies and actions that will help New
Zealanders adapt to the changing climate and its effects.
40. Central government is reviewing legislation to adapt and build
resilience to climate change. This
includes the Three Waters Reform, repealing and replacing the Resource
Management Act 1991 with three new pieces of legislation, including the Climate
Adaptation Act. The Climate Adaptation Bill on
adaptation and managed retreat is intended to be released this year. While
legislation is still in development, we expect it to provide a framework for
climate adaptation, including a lead role for councils. It is likely that much
of the detail of the regime will be contained in regulations and will not be
determined until 2024. Auckland Council will need to
adapt to these legislative changes if or when enacted.
41. The
decision of the Planning, Environment and Parks Committee on the “Report
back on the scope of work: flooding impacts, implications and
improvements” (PEPCC/2023/25) is noted in this regard. The Recovery
Coordination Office and a team from the Chief Planning Office are working
collaboratively on these matters.
Auckland Council group assets
42. Significant
damage has been sustained across Auckland Council’s regional and local
assets.
43. Staff
are still prioritising and quantifying the damage to the assets of Auckland
Council and the Auckland Council group. Future reports will provide updates on
potential costs, which are expected to be significant.
Funding and resources
44. Central
government reimburses Auckland Council for expenditure on welfare support for
affected people, has contributed Disaster Relief Funds and provided specific
funding to business and farmers though grants administered by the Ministry of
Primary Industries and Ministry for Business Innovation and Employment through
the response.
45. New
Zealand experience suggests that recovery from significant events typically
takes longer and costs more than initial estimates.
46. Financial support for recovery is specific and determined by policy.
For example, a government contribution to the cost of repairing essential
infrastructure is available subject to thresholds and eligibility. A
contribution to road and bridge repair may also be available and the government
provides temporary accommodation for people and families displaced from their
homes.
47. The
occurrence of consecutive, overlapping events has made the transition more complicated
as the continuation of required emergency response-type activities continues to
draw on resources and decision-making. Appropriately planned de-escalation and
demobilisation is required.
48. Reimbursement
for expenditure on welfare activities during an emergency response is not
normally available from NEMA during recovery. In recognition of the overlap of
the January Floods and Cyclone Gabrielle, NEMA has agreed reimbursement can be
sought for expenditure on the response-type welfare activities provided to
isolated west coast communities during recovery.
49. Establishing
recovery efforts is a significant undertaking. Maintaining them for the
necessary duration is also a significant commitment, necessitating unplanned
expenditure, reprioritisation of resources and generating demands on the
council group in addition to modifying business as usual. The recovery effort
requires coordination of resources across the council group and multiple
government ministries, organisations and community groups.
50. These
challenges are currently exacerbated by skills shortages, fatigue from a
lengthy response and the ambiguity associated with transition from response to
recovery.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
51. The update on
the recovery from the January Floods and Cyclone Gabrielle does not impact on
greenhouse gas emissions or approaches to reduce emissions, though may identify
opportunities to provide additional benefit in the context of climate change.
52. A core goal of Te Tāruke-ā-Tāwhiri: Auckland’s
Climate Plan is to adapt to the impacts of climate change by ensuring we plan
for the changes we face under our current emissions pathway. The Recovery
Coordination Office’s activities will contribute to delivery of actions
within Te Tāruke-ā-Tāwhiri, in particular, Action C1. "Work
together to strengthen the resilience of our communities, people and
places" which includes the sub-actions:
· Establish a prioritised programme of support for communities and
individuals who are most impacted.
· Engage and educate communities and industries to be aware of current
and future climate risks and consequences of hazards.
· Identify how mana whenua, communities and their places can be more
resilient.
53. The Recovery Coordination Office’s work with the team from the
Chief Planning Office on the “Report back on the scope of work: flooding
impacts, implications and improvements” (PEPCC/2023/25) referred to above
is noted in this regard.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
54. In
recognition of the council group’s constrained financial position, the
recovery is based on portfolio management approaches and delivered under a
distributed model. Coordination will be undertaken by a lean Recovery
Coordination Office, with dedicated workforce provided, and recovery efforts
undertaken, by business units across the Auckland Council group.
55. Auckland
Transport and Watercare Services Limited have participated in discussions
informing the design of the Recovery Coordination Office, the pou, workstreams
and participation in the Office. Working together will increase as the Office
is established and commences coordinated delivery of the work programme.
Extension of these arrangements to other members of the Council Group will
arise out the work programme.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
56. The impacts
of the January Floods and Cyclone Gabrielle were experienced across the
Auckland region and are of significant interest to local communities and their
local boards. The recovery will involve significant local board involvement and
engagement.
Tauākī whakaaweawe
Māori
Māori impact statement
57. Mana whenua
and mataawaka living in Auckland were impacted by the January Floods and
Cyclone Gabrielle as individuals and whānau and through impacts on marae
and sites of cultural significance. Many marae acted as community hubs
providing support to those impacted by the weather event.
58. The recovery
is an opportunity to partner with iwi, mataawaka, marae and Māori
businesses. Areas for consideration could include the use of marae and
Māori-led organisations in delivering recovery activities to their
communities, responding to impacts on the natural environment, including native
species and ecosystems, and changes to land use and stormwater systems to
enhance the mauri of waterways in Tāmaki Makaurau.
Ngā ritenga
ā-pūtea
Financial implications
59. The financial
implications for Auckland’s recovery, include the direct costs of the
Recovery Coordination Office, and the indirect cost of dedicated staff resource
and recovery efforts undertaken by business units across the council group
under their existing budgets.
60. The report seeks approval for an upper limit of up to $3 million of
unbudgeted costs in the current 2022/2023 financial year to support the
operation of the Recovery Coordination Office, some staff costs including the
Group Recovery Manager position (when appointed), the preparation of the
Recovery Plan, retention of specialist expertise (for example Geotech and other
engineering advice, workforce and resourcing), and communication and community
engagement.
61. The $3 million request is considered an upper limit as staff need to
err on the side of creating an enabling level of resource. The upper limit of
$3 million allows sufficient capacity to avoid time delays when unknown but
necessary expenditure is required. This flexibility is balanced by the cadence
of regular reporting which provides transparency to Governing Body on the work
and spend.
62. Additional
controls on discretionary spending have now been put in place while work is
undertaken on a full assessment of the financial impacts of the storm and
cyclone events. These controls may result in further operating expenditure
reductions in 2022/2023 that could partially offset these unbudgeted costs.
Further opportunities for cost offsets include funding from government and a
better understanding of the recovery scope.
63. As
a last resort this cost would need to be funded by additional debt.
64. While
there are financial challenges the council will need to address through the
annual budget and Long-term Plan, our prudent financial management has
maintained sufficient debt headroom for exactly these kinds of situations and
can fund the additional expenditure if absolutely necessary.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
65. The Recovery
Coordination Office’s function, role and responsibilities as the
Portfolio Management Office (PfMO) include risk management.
Ngā koringa ā-muri
Next steps
66. Staff will
continue to reprioritise work programmes to enable a focus on recovery efforts.
67. As discussed
at the Extraordinary Meeting of the Civil Defence Emergency Management
Committee (9 February 2023) the Governing Body will receive monthly updates and
the Civil Defence Emergency Management Committee will receive quarterly
reports.
68. Local Boards
will receive regular updates once the Recovery Coordination Office has become
established and commences delivery of the work programme.
69. The Governing
Body will receive an update at its next meeting on 27 April.
Ngā tāpirihanga
Attachments
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No.
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Title
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Page
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a⇩
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Response to Recovery Transition Report
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15
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b⇩
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Recovery Coordination Office - Overview 16.03.23
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85
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Ngā kaihaina
Signatories
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Author
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Wayne Brown - Principal Recovery Advisor
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Authorisers
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Phil Wilson - Director, Governance & CCO
Partnerships
Jim Stabback - Tumu Whakarae / Chief Executive
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