Quebec Region Emergency Management Plan
Table of contents
Introduction
Indigenous Services Canada's (ISC) regional emergency management plans provide an overview of the roles and responsibilities of ISC regional offices and regional staff in supporting First Nations emergency management. This plan defines the responsibilities of the Quebec regional office and its relationships with: First Nations, Indigenous-led organizations, provincial and territorial governments, and non-governmental organizations involved in emergency management activities that support First Nations communities.
This plan is an appendix to ISC's National All Hazards Emergency Management Plan, targeting specific regions:
- risks and hazards;
- communication and information sharing mechanisms;
- the method used by ISC's Quebec regional office to work with service providers and First Nations to ensure that emergency services are culturally appropriate.
Like the ISC National Emergency Management Plan, this document is not intended to replace the procedures and plans of First Nations, provinces, territories, regions, or communities. Rather, it is intended to complement existing plans or procedures and can be used to make informed decisions and take concrete action to assist First Nations communities in emergency situations.
This regional plan is intended to be a living document. It will be reviewed and updated at least every two years, or following significant changes in mandates or roles and responsibilities.
Scope
This plan supports First Nations located on lands eligible for the Emergency Management Assistance Program (EMAP). The EMAP can provide funding to eligible recipients for the four pillars of emergency management: prevention and mitigation, preparedness, response, and recovery. For more information on the scope of the national emergency management plan, see the All-Hazards National Emergency Management Plan.
According to Public Safety Canada's All-Hazards Federal Capabilities and Issues Matrix, PSAC's mandate in emergency management is to:
- Protect the health and safety of First Nations communities and members;
- Protect First Nations land, assets, and environmental infrastructure;
- Mitigate emergency risks in First Nations communities;
- Increase the capacity of First Nations communities to effectively manage emergencies, including health emergencies;
- Reduce economic and social losses in First Nations communities;
- Assist all Indigenous communities before, during, and after a disaster or pandemic;
- Analyze and recommend approval of expenditures and provide financial assistance during and after disasters affecting First Nations.
Regional risk context
As indicated in ISC's National Emergency Management Plan, Canada's risk context includes a wide range of natural and man-made hazards. Each region has its own hazards. Below is an assessment of regional risks in Quebec.
Regional context for risk assessment
According to Gestion des risques en sécurité civile (Civil Security Risk Management), a document that provides "a reference framework that respects the approach and principles of civil security in Quebec and [ensures] rigorous and effective management of risks that could cause a disaster[Footnote 1]," risk assessment is part of a risk management process, specifically at the risk evaluation stage. The latter consists of three distinct exercises, namely:
- risk identification;
- risk analysis;
- risk assessment.
In order to carry out such an assessment, a rigorous, tailored, and evidence-based analysis is required. To this end, ISC has mandated the W8banaki Tribal Council to support First Nations in their preparedness efforts so that they can respond to natural disasters and emergencies. Services will be focused on the four pillars of emergency management: mitigation, preparedness, response, and recovery. W8banaki takes a flexible and culturally appropriate approach that takes into account traditional Indigenous knowledge, First Nations customs, and the evolution of disasters and emergencies. Community risk analyses are conducted by W8banaki through the coordination of the production or updating of emergency response plans and community deployment exercises. W8banaki supports each First Nations community in Quebec in completing an inventory of existing or potential risks, based on its specific situation.
The main challenges facing Indigenous communities are:
- Isolation of communities (32%, or 13 out of 41 communities) located more than 350 km from a service center or without year-round road access to a service center;
- Isolated and remote communities are vulnerable to disruptions in essential services such as electricity, drinking water, telecommunications, and food supplies. They depend on fragile infrastructure and may be cut off in the event of disasters (forest fires, winter storms, floods, landslides, etc.);
- Lack of personnel in the areas of emergency management, fire protection, public safety, and health within Indigenous communities.
Risk assessment for the Quebec region
- Winter storms, extreme cold, and ice storms
- Winter thaws leading to flooding and ice jams
- Spring floods, flooding, and bank erosion
- Fluctuations in the levels of certain waterways
- Ground movement and landslides
- Forest and peatland fires
- Extreme heat, heat waves, low water levels, severe storms, and tornadoes
- Post-tropical storms
- High winds, tornadoes, and fall storms
- Coastal erosion and storm surges
- Power and telecommunications outages
- Other human-made risks (major industrial accidents, transportation of hazardous materials, nuclear incidents, etc.)
- Health risks: outbreaks, epidemics, pandemics
Regional legislation regulations authorities and agreements
This emergency response plan has been developed in accordance with key federal and provincial laws, policies, and frameworks governing emergency management in Canada. It is based in particular on the Emergency Management Act (S.C. 2007, c. 15), the Department for Indigenous Services Act, and the Emergency Preparedness Act, which aims to promote disaster resilience. The plan is also guided by the Federal Emergency Management Policy and Canada's Public Safety Framework, ensuring that ISC's actions are consistent with those of its federal, provincial, territorial, and Indigenous partners.
- Emergency Management Act
- Department of Indigenous Services Act
- Federal Emergency Management Policy
- A Civil Protection Framework for Canada - Third Edition
- Civil Protection Act to promote disaster resilience
- Sustainable Forest Management Act, which states: "The Minister may recognize, for a territory that he or she delimits, a non-profit organization as a forest fire protection organization. The organization is responsible for organizing forest fire protection for the territory for which it is recognized. It carries out its work in accordance with the guidelines and directives provided by the Minister."In this case, the Société de protection des forêts contre le feu (SOPFEU) was designated by the Minister.
Regional agreements
W8banaki is a partner in ISC's Emergency Management Assistance Program. W8banaki's involvement in emergency management is part of a vision of service transfer. Their mission in emergency management is to assist First Nations communities before, during, and after disasters. W8banaki is involved in the four pillars of emergency management—prevention, preparedness, response, and recovery—in support of local communities. Located in Wôlinak, the W8banaki Emergency Operations Center provides emergency support to First Nations communities in Quebec, in coordination with tribal councils and various levels of government. In particular, W8banaki implements and coordinates major training, emergency planning, and equipment delivery projects to strengthen communities' capacity to prepare for and respond to disasters. W8banaki is also involved in community recovery following disasters, while working on risk mitigation, both structural and non-structural.
In the event of a disaster, Quebec government resources must assist local authorities in mitigating the impact on people and property. ISC has entered into a bilateral agreement with the Ministry of Public Safety (MSP) to oversee Quebec's assistance to First Nations in the event of disasters and to promote collaboration in risk management. This agreement, which is currently being renewed, sets out the terms and conditions for the implementation of response and recovery measures for First Nations in the event of a disaster, with expenses reimbursed by Canada. For more information about the MSP, please visit the following web page: Ministry of Public Safety (not available in English).
The agreement between SOPFEU and ISC aims to fund the hours worked by staff dedicated to developing support services for First Nations communities related to risk prevention and mitigation, as well as preparing and training responders in the event of wildfires. In addition to fighting fires in intensive and northern areas, SOPFEU supports communities by conducting risk analyses and strengthening their knowledge of wildfires. For more information about SOPFEU, please visit the following web page: SOPFEU.
The service agreement between ISC and the Red Cross aims to strengthen crisis and emergency preparedness and the resilience of communities, their responders, and their residents. The Red Cross provides training to community responders on disaster relief services, combining a hybrid course and educational tools. Finally, in the event of an emergency affecting communities, the Canadian Red Cross prepares and plans for temporary accommodation in host communities in case of evacuation. The Canadian Red Cross also supports communities by providing temporary accommodation assistance and essential goods and services (food, clothing, psychosocial support, etc.). For more information about the Canadian Red Cross, please visit the following webpage: Canadian Red Cross.
In terms of psychosocial crisis planning and management, the FNQLHSSC (First Nations of Quebec and Labrador Health and Social Services Commission) supports and advises communities and organizations. It supports prevention, intervention, and recovery in crisis situations by providing them with resource persons, models, documents, and other tools useful for their actions. The FNQLHSSC works in collaboration with its partners, particularly the Regional Aboriginal Health Services Delivery sector. For more information about the FNQLHSSC, please visit the following web page: FNQLHSSC.
Coordination, communication, and information exchange mechanisms
Levels of response
Emergency response is based on a three-level framework, defined according to the scope and intensity of an event or emergency situation. These levels are determined during the preliminary risk assessment phase.
Level 1: Monitoring
A situation that can be managed locally with community resources. ISC, supported by W8banaki, monitors the situation daily and provides advice as needed.
Level 2: Moderate
A potential or actual emergency or event occurring in a community that requires resources beyond the capacity of one organizational unit (OU) and requires a certain level of coordination with another OU, branch, or region. Increased response could result in the activation of an emergency response plan specific to the hazard in question.
Level 3: Maximum
A potential or actual emergency or event that requires full and complete coordination by ISC. A rapid or maximum response will result in the full activation of the Emergency Coordination Center (ECC) and the Functional Response Center (FRC).
Regional structure of the Emergency Coordination Center
In order to respond effectively to an emergency, the Emergency Coordination Center (ECC) of Regional Service Delivery, Emergency Management has established a regional emergency response structure. This structure is based on the Incident Command System (ICS) and specifies the various positions that can be filled, as well as the tasks to be performed during an emergency response: Regional Executive Director, Crisis and Emergency Management Committee, Emergency Manager, Communications, Policy, Operations, Planning, Logistics, and Finance and Administration.
The CCU may be activated for the following reasons:
- to assist one or more First Nations affected by an emergency;
- to support a provincial or federal Emergency Operations Center;
- to provide increased monitoring of a situation that could become an emergency in one or more First Nations;
- to conduct emergency management training or exercises.
Regional Structure of the Functional Response Center
In order to respond effectively to an emergency, the Regional Service Delivery, Aboriginal Health Function Response Centre (FRC) has established a regional emergency response structure. This structure is based on the Incident Command System (ICS) and describes the various positions that may be filled and the tasks that may be performed in response to an emergency. This system provides for RIC staff to be divided into different functions, namely: Regional Executive Management, Policy, Communications, Liaison, Operations, Coordination and Logistics, Planning, Finance, and Human Resources. In addition, at least one emergency manager must be appointed. The emergency manager is responsible for ensuring the smooth operation of the CIF's mobilization throughout the event. The functions of the structure are responsible for the various aspects and activities of the emergency response. Each function has a manager who reports to the emergency manager.
During a Level 3 emergency, the two Emergency Management sectors in the Quebec City and Montreal offices, as well as the W8banaki Emergency Management team, are the main actors involved with a community in which a disaster occurs. W8banaki acts as a liaison with communities and can be deployed to Indigenous communities if the situation requires direct support.
Federal, provincial, and non-governmental partners
Throughout an emergency event, ISC supports and assists the coordinator and the community's Emergency Management Committee by coordinating with other federal (e.g., Department of Public Safety) and provincial agencies that may be involved in a situation. The Federal Coordination Working Group (FCWG) allows ISC to network with all federal departments with an emergency management mandate. This group also provides rapid access to various resources and expertise from different federal partners. ISC liaises with Quebec Civil Protection, First Nations, and support organizations, as the exchange of relevant information with partners is crucial to the response. When a community's local capabilities and ISC's jurisdiction are exceeded, the Quebec Ministry of Public Security assists local authorities to reduce the impact on people and critical infrastructure.
Establishment of communication channels
When an emergency affects a First Nation, the Quebec Regional Communications team communicates and collaborates as needed with the band council of the affected community to validate and identify the official spokesperson to whom media requests will be forwarded. Calls between partners (FNQLHSSC, W8banaki, Canadian Red Cross, SOPFEU, Quebec government) can be organized as needed to agree on the public messages to be conveyed. Calls can also be organized to obtain information from Indigenous partners about their communications needs. In this way, ISC's Quebec Regional Communications team can support communities and organizations in creating and disseminating communications materials tailored to the needs of First Nations members.
Culturally appropriate emergency services in Quebec
As part of emergency response activities, ISC's Quebec regional office and its partners ensure that culturally appropriate and culturally safe services are provided. For example, the preparedness and mitigation training offered by partners is currently being redesigned to include a component on cultural awareness. The same is true for the forest firefighter training provided by SOPFEU.
In terms of the services offered during emergency responses, ISC and its partners take care to ensure cultural continuity throughout events, in collaboration with the emergency response committee of the affected communities, their health center, the nursing station, and tribal councils.