Australian Government Crisis Management Framework (AGCMF)

Roles and responsibilities

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.

Figure 8. Key roles and their responsibilities

Roles

Responsibilities

Lead Minister

  • Provides advice to the Prime Minister and the National Security Committee of Cabinet (NSC) (or other Committees of Cabinet) on whole of Australian Government crisis priorities and consequence management objectives.
  • Oversees a coordinated Australian Government response to crisis and coordinates ministerial activities by collaborating with other Australian, state and territory counterparts.
  • Exercises executive responsibilities and decision-making in consultation with Australian Government ministers with relevant interests.
  • Ensures there are systems and procedures available so that they are readily contactable.
  • Ensures their office maintains business continuity plans in the event that the office is affected directly by a crisis.
  • Acts as the key Australian Government spokesperson in alignment with a whole of Australian Government crisis communications strategy.
  • Records ministerial decisions and actions relevant to the crisis.

Other ministers

  • Ensure their portfolios are prepared to support crisis coordination.
  • Provide advice to the Prime Minister and the NSC (or other Committees of Cabinet) on Australian Government crisis priorities and objectives relevant to their respective portfolio responsibilities.
  • Oversee the consequence management activities of agencies within their portfolio.
  • Retain and execute executive responsibilities and decision-making in consultation with Australian Government ministers with relevant interests.
  • Record ministerial decisions and actions relevant to the crisis.

Lead Coordinating Senior Official

  • Ensures that their agency (an Australian Government Coordinating Agency designated under the Framework) is prepared and positioned to coordinate Australian Government actions in response to crisis or crises caused by their designated identified hazard(s)
  • Advises and supports the Lead Minister in executing the Lead Minister’s responsibilities.
  • Where the Lead Minister is the Prime Minister, advises and supports the Prime Minister through PM&C.
  • Assesses the level of crisis coordination required, and establishes, reviews and adapts the appropriate tier of coordination over the course of the crisis.
  • Maintains near real time situational awareness and monitors impacts and consequences of the crisis across all sectors.
  • Facilitates shared situational awareness across the Australian Government and nationally.
  • Facilitates agreement to whole of Australian Government coordination priorities and objectives.
  • Ensures coordination of cross-government advice to relevant ministers.
  • Engages and collaborates with counterparts in Sector Lead Agencies and Enabling Agencies to ensure the requirements under this Framework are being met.
  • Regularly convenes an overarching senior officials’ coordination forum during a crisis in collaboration with senior official responsible for the relevant forum.
  • In line with chairing arrangements, co-chairs the peak senior official’s crisis coordination committee and briefs NSC (or other Committee of Cabinet), as required.
  • Maintains clear lines of communication with the Lead Minister’s office.
  • Coordinates development of a whole of Australian Government crisis communications strategy and ensures the dissemination of crisis communications products and public information (such as whole of government talking points and briefing materials).
  • Coordinates strategic planning activities.
  • Maintains oversight of any requests for or offers of assistance received by Australian Government agencies from state, territory or foreign governments, coordinating with responsible agencies, including DFAT and NEMA.
  • Manages risks related to crisis coordination.
  • Engages with counterparts in states, territories and/or international jurisdictions as required, coordinating with responsible agencies including DFAT and NEMA.
  • As crisis coordination concludes, ensures transfer of any ongoing responsibilities and processes to relevant senior officials, agencies (including state and territory leads) and recovery coordination mechanisms.
  • Conducts post-response evaluation and supports integration of relevant lessons identified into the continuous improvement of the Australian Government’s crisis management arrangements, including plans and capabilities.
  • Maintains records of decisions and actions relevant to the crisis.

Australian Government Coordinating Agency

  • Monitors crisis events that may impact the interests and responsibilities of agencies across the Australian Government.
  • Supports the Lead Coordinating Senior Official in making decisions and recommendations on the level of coordination and response required.
  • Harnesses capabilities and resources in line with coordination requirements from within the portfolio, and from other agencies when portfolio-managed options are insufficient.
  • Provides secretariat and convening functions for sector-specific committees.
  • Supports development and coordination of a whole of Australian Government crisis communications strategy and ensures the dissemination of crisis communications products and public information (such as whole of government talking points and briefing materials).
  • As crisis coordination concludes, supports the transfer of any continuing functions and responsibilities to relevant officials and agencies (including state and territory leads) and recovery coordination mechanisms.
  • Conducts post-response evaluation and supports integration of relevant lessons identified into the continuous improvement of the Australian Government’s crisis management arrangements, including plans and capabilities.
  • When a crisis occurs in an Australian External Territory, works with the Department of Infrastructure, Transport, Regional Development, Communications and the Arts (DITRDCA) to coordinate crisis management.
  • Deploys liaison officers to the NSR, DFAT CC or other operations centres as required to support situational awareness.
  • Engages with counterparts in states, territories and/or international jurisdictions, coordinating with responsible agencies including NEMA and DFAT as required.
  • Maintains business continuity plans to ensure the agency can continue to perform its role if it is affected directly by a crisis.
  • Maintains records of decisions and actions relevant to the crisis.

Sector Lead Agency

  • Monitors crisis events that may impact the agency’s interests and responsibilities.
  • Conducts sector-specific responses and consequence management activities within its own portfolio, including coordination across jurisdictional equities as required.
  • Deploys liaison officers to the NSR, DFAT CC or other operations centres as required to support shared situational awareness.
  • Proactively contributes to the whole of Australian Government crisis communications strategy, dissemination of crisis communications products and public information (such as whole of government talking points and briefing materials).
  • Engages with counterparts in states, territories and/or international jurisdictions, coordinating with responsible agencies including DFAT and NEMA as required.
  • Manages risks related to the consequence management activities within their own portfolios.
  • Maintains business continuity plans to ensure the agency can continue to perform its role if it is affected directly by a crisis.
  • Maintains records of decisions and actions relevant to the crisis.

Enabling Agency

  • Administers relevant programs.
  • Provides specialist technical, scientific, intelligence or information capabilities.
  • Supports or conducts any other enabling activities to support consequence management activities.
  • Deploys liaison officers to the NSR, DFAT CC or other operations centres as required to support shared situational awareness.
  • Proactively contributes to the whole of Australian Government crisis communications strategy, dissemination of crisis communications products and public information (such as whole of government talking points and briefing materials).
  • Engages with counterparts in states, territories and/or international jurisdictions as required, coordinating with responsible agencies including NEMA and DFAT.
  • Maintains business continuity plans to ensure the agency can continue to perform its role if it is affected directly by a crisis.
  • Maintains records of decisions and actions relevant to the crisis.

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

  1. Consequence management refers to a process undertaken to predict, identify, manage and minimise negative outcomes and impacts from crises. Return to footnote 16
  2. The principles of Cabinet Government can be found in the Cabinet Handbook. Return to footnote 17