An important function of this Framework is articulating the roles and responsibilities of Australian Government ministers and senior officials. During a significant crisis, clarity of purpose and priorities is crucial for ensuring that an Australian Government response is aligned and effective, and sustains community trust.
This Framework designates Lead Ministers, Australian Government Coordinating Agencies and Lead Coordinating Senior Officials for identified hazards. Where there is no clearly identified hazard (see Appendix A on p. 47), PM&C will work with NEMA and relevant Australian Government agency officials to identify an appropriate Australian Government Coordinating Agency, depending on the realised or likely impacts and consequences of the hazard and required Australian Government capabilities.
To facilitate a consistent approach, definitions for the key roles are provided below.
- A Lead Minister is the Australian Government minister responsible for leading coordination in response to a significant crisis caused by an identified hazard under this Framework.
- An Australian Government Coordinating Agency is the agency required to lead the coordination across the Australian Government for a significant crisis caused by an identified hazard under this Framework. This agency also leads the consequence management16 activities within its agency functions and sector-specific responsibilities.
- Subject to agreement, an Australian Government Coordinating Agency can change during a crisis should the impacts evolve over time to predominantly affect a different Australian Government portfolio or where NEMA assumes the role.
- Following a change, the former Australian Government Coordinating Agency would become a Sector Lead Agency and continues to lead the consequence management activities within its agency functions and sector-specific responsibilities.
- A Lead Coordinating Senior Official is the designated senior official within an Australian Government Coordinating Agency who is responsible for leading the coordination for a significant crisis.
- A Sector Lead Agency is an Australian Government agency that contributes to whole of Australian Government crisis coordination activities and leads the consequence management activities relevant to agency functions and sector-specific responsibilities.
- An Enabling Agency is an Australian Government agency that administers relevant programs, provides specialist technical, scientific, intelligence or information capabilities or conducts any other enabling activities to support consequence management activities.
The establishment of the roles of Lead Minister, Australian Government Coordinating Agency and Lead Coordinating Senior Official under the Framework does not displace the existing executive responsibilities of ministers and senior officials. During a crisis, ministers and senior officials retain their statutory powers, with agencies and officials continuing to report to their respective ministers. This applies across all tiers of crisis coordination.
Roles | Responsibilities |
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Lead Minister |
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Other ministers |
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Lead Coordinating Senior Official |
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Australian Government Coordinating Agency |
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Sector Lead Agency |
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Enabling Agency |
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The Prime Minister
Depending on the nature and scale of the crisis, the Prime Minister may decide to lead some or all elements of the Australian Government’s preparation for, response to and recovery from a crisis, including acting as the key Australian Government spokesperson. When this occurs, the Prime Minister will undertake the Lead Minister role and advise ministers which elements of coordination the Prime Minister will lead and which elements the relevant portfolio minister will continue to lead, in line with the principles of Cabinet Government.17 For a list of coordination responsibilities relevant to the Lead Minister role, see Figure 8.
The Prime Minister may convene the NSC or other Committees of Cabinet as the Prime Minister deems necessary. The Prime Minister may also convene the National Cabinet at short notice to ensure coordinated action across Australian, state and territory governments.
The Prime Minister may advise the Governor-General to make a national emergency declaration (NED) in accordance with the National Emergency Declaration Act 2020. The process for making a NED, including legal and consultation thresholds, is outlined in the National Emergency Declaration Aide-Mémoire, maintained by PM&C.
The Prime Minister is the Lead Minister for Tier 4 coordination. The Prime Minister may delegate the Lead Minister role to another minister. At Tier 4 where NEMA is the Australian Government Coordinating Agency, NEMA will brief the Prime Minister through PM&C.
Department of the Prime Minister and Cabinet
PM&C is responsible for the policy settings for whole of Australian Government crisis management arrangements. It is responsible for maintaining this Framework and the Handbook.
If required, PM&C can:
- initiate an Australian Government response
- determine the initial tier of coordination and adjust the tier over time
- determine the initial Australian Government Coordinating Agency
- co-chair the peak senior officials’ crisis coordination committee, including the NCM or Inter-Departmental Emergency Task Force (IDETF)
- change the Australian Government Coordinating Agency and Lead Coordinating Senior Official following consultation with relevant senior officials
- initiate escalation to NEMA-led coordination (see the Coordination for extreme to catastrophic crises (Tier 4) section on p. 38).
National Emergency Management Agency
NEMA is the custodian of Australian Government crisis capabilities that support some or all elements of crisis coordination.
NEMA:
- administers the NCM on behalf of Australian Government agencies
- supports whole of Australian Government situational awareness through the NSR and NJCOP
- supports Australian Government crisis management capabilities by providing best practice guidance, including for preparatory and strategic planning, crisis communication and recovery.
The Deputy Coordinator-General, Emergency Management and Response, NEMA (DCG EMR NEMA) is responsible for Australian Government crisis preparedness, response, relief, and transition to early recovery.
DCG EMR NEMA:
- chairs (or co-chairs) the NCM
- supports timely, accurate and coordinated decision making
- oversees the NSR.
NEMA is the Australian Government Coordinating Agency responsible for whole of Australian Government coordination during extreme and catastrophic crises (Tier 4). For more details, see the ‘Coordination for extreme and catastrophic crises (Tier 4)’ section on p. 38.
NEMA may also lead Tier 3 coordination at the request of the designated Australian Government Coordinating Agency, subject to the designated Australian Government Coordinating Agency demonstrating that response requirements are beyond its coordination capacity or capability. PM&C may also initiate transition to NEMA-led coordination.
NEMA is the default Australian Government Coordinating Agency when a crisis is novel or not designated in the Framework, or when there are concurrent crises, until such time as an appropriate Australian Government Coordinating Agency is agreed. The Minister responsible for Emergency Management is the default Lead Minister until such time that an appropriate Lead Minister is agreed.
Footnotes
- Consequence management refers to a process undertaken to predict, identify, manage and minimise negative outcomes and impacts from crises. Return to footnote 16 ↩
- The principles of Cabinet Government can be found in the Cabinet Handbook. Return to footnote 17 ↩