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 are concurrent events (including multiple hazards) with converging consequences and priorities, or there is no clearly identified hazard (see Appendix A), PM&C will work with NEMA and relevant Australian Government agency officials to identify an appropriate Australian Government Coordinating Agency.

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.

During crisis, coordination efforts by the Australian Government should:

provide senior officials with an accurate and unified picture of the crisis
support decision-making by ministers and key decision-making bodies, including the provision of advice on relevant legislation, emergency powers, and existing and available Australian Government mechanisms and capabilities
ensure consistent public messaging and information
maintain public safety and trust in government institutions
ensure ministerial directions are effectively implemented across government
de-conflict government actions and support prioritisation.

Lead Minister

A Lead Minister is the Australian Government minister responsible for leading coordination in response to a significant crisis (or concurrent crises with converging consequences) caused by one or more identified hazards under this Framework (see Appendix A).

The Lead Minister is responsible for ensuring their portfolio is prepared to coordinate whole of Australian Government responses to significant crises, including familiarity of relevant legislation and sufficient staffing capacity or surge arrangements.

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.

Ministerial decision-making and shared situational awareness are supported through the co-option of the chair(s) of coordination mechanisms (NCM or Inter-Departmental Emergency Task Force (IDETF)) where deemed appropriate by the Prime Minister, and by direct briefings to relevant ministers, or the Prime Minister through PM&C.

A seated conversation between an elderly female evacuee wearing a hijab and a female DFAT officer in a yellow Australian Official vest. The evacuees luggage nearby. — Assisted departure from the Occupied Palestinian Territories (DFAT)

Lead Coordinating Senior Official

A Lead Coordinating Senior Official is the designated senior official within an Australian Government Coordinating Agency who is responsible for leading the Australian Government coordination for a significant crisis (or concurrent crises with converging consequences).

The Lead Coordinating Senior Official is responsible for ensuring their agency (as the Australian Government Coordinating Agency) is prepared, this includes building and maintaining their agency’s capabilities to ensure that it can efficiently manage coordination of the Australian Government’s response to crises arising from identified hazard(s).

The Lead Coordinating Senior Official performs functions to support near-term preparedness for, response to and early recovery from crisis (see Figure 6), including:

facilitating near real time shared situational awareness across the Australian Government (using situation reports and relevant forums)
monitoring impacts and consequences of the crisis across all sectors
convening crisis forums
coordinating a whole of Australian Government crisis communication strategy and ensuring dissemination of whole of Australian Government crisis communication products and public information (including whole of government talking points)
conducting strategic planning to:
- identify Australian Government equities
- establish and facilitate agreement to whole of Australian Government coordination priorities and objectives, response requirements and responsibilities
- coordinate cross-government advice to relevant ministers
conducting a post-incident evaluation of significant crises to inform continuous improvement of Australian Government capabilities and arrangements.

The Australian Government Coordinating Agency (AGCA) and Lead Coordinating Senior Official (LCSO) are responsible for developing and maintaining crisis management capabilities in line with their obligations under the Framework for their designated hazards. The mechanisms and capabilities may be utilised to support the LCSO as part of broader Australian Government coordination and response arrangements. These capabilities remain owned and overseen by the relevant agencies, and their use is subject to established governance, authorities and operational arrangements.

Roles	Responsibilities
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 the Lead Minister on their role and responsibilities, and supports the Lead Minister in executing those 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, including awareness of Australian Government agencies’ capacity to coordinate response efforts. 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

The Australian Government Coordinating Agency is the agency required to lead the coordination across the Australian Government for a significant crisis (or concurrent crises with converging consequences) caused by one or more identified hazards under this Framework. This agency also leads the consequence management¹³ 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 continue to lead the consequence management activities within its agency functions and sector-specific responsibilities including their national plan phase changes.

To maintain crisis preparedness, the Australian Government Coordinating Agency is responsible for developing, maintaining, exercising and evaluating the capabilities required to coordinate Australian Government responses to the hazard(s) designated to the agency. These capabilities include:

a national plan for each identified hazard designated to the agency by this Framework (see Appendix A)
sector-specific crisis coordination mechanisms and arrangements
a trained workforce with appropriate security clearances
planning capability and familiarity with relevant crisis tools
systems and processes used in crisis management.

The Australian Disaster Preparedness Framework can help to inform the strategic governance, policy and investment required to support national disaster preparedness.¹⁴

Roles	Responsibilities
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, Sport and the Arts (DITRDCSA) to coordinate crisis management. Deploys liaison officers to the NSR, the DFAT Crisis Centre (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 & Enabling Agencies

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, service delivery, or conducts any other enabling activities to support consequence management activities.

Roles	Responsibilities
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, including service delivery, 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.

Other Ministers

Roles	Responsibilities
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.

The Prime Minister

Depending on the nature and scale of the crisis, the Prime Minister may 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.¹⁵ For a list of coordination responsibilities relevant to the Lead Minister role, see Roles and responsibilities.

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. See a full list of Key legislation.

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. For more details, see the ‘Coordination for extreme and catastrophic crises (Tier 4)’ section.

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 National Coordination Mechanism (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.

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), or delegate, 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.

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 13 ↩
The Australian Disaster Preparedness Framework. Return to footnote 14 ↩
The principles of Cabinet Government can be found in the Cabinet Handbook. Return to footnote 15 ↩

Australian Government Crisis Management Framework (AGCMF)