Extreme rainfall across eastern Australia in 2021 and 2022 led to a series of major flood events in NSW, including extensive flooding in the Northern Rivers. Between late February and early April 2022, 13 people died as a result. Four thousand and fifty-five properties became uninhabitable, and another 10,849 properties were damaged.

Following these events, the NSW Government launched a series of programs to support homeowners to recover and to build housing resilience in the Northern Rivers. This included the Resilient Homes Fund, which includes 2 programs aimed at the longer-term recovery of the Northern Rivers: the Resilient Homes Program (RHP) and the Resilient Lands Program (RLP). The RHP is co-funded with the Commonwealth Government through the Disaster Recovery Funding Arrangements (DRFA) and the RLP is funded by the NSW Government.

The RHP is an $880 million program that aims to provide financial assistance to homeowners to improve the flood resilience of their properties in the Northern Rivers. It intends to do this through voluntary buybacks, as well as by implementing measures to increase the resilience of homes, such as rebuilding housing with flood-hardened materials or home-raising. Buybacks for the program have been delivered in 2 phases: a pilot program that began in February 2023, and the main phase of the program, which began in June 2023.

The RLP is a $100 million program that aims to speed up the delivery of new land and housing in the Northern Rivers to provide flood-affected residents with housing options to support their relocation, and to improve the resilience of the region. The program began in October 2022 with a request for Expressions of Interest from landholders to propose suitable land for the program. Following the assessment of this land, the Resilient Lands Strategy was published in August 2024. It consists of 12 priority sites that aim to accelerate the delivery of housing in the region using a variety of interventions including the purchase of land, delivery of housing in conjunction with Landcom and Homes NSW, and funding for infrastructure to support the private development of housing.

In July 2022, the Northern Rivers Reconstruction Corporation (NRRC) was established to lead the reconstruction of the Northern Rivers region following the flood events. The NRRC was responsible for the programs before July 2023, at which point the NRRC transitioned to the NSW Reconstruction Authority (the Reconstruction Authority), which then became responsible for the programs. The NRRC was dissolved in August 2023. The former Department of Regional NSW also played a role in establishing the programs.

This audit assessed whether the NSW Reconstruction Authority is effectively administering the RHP and the RLP to meet the programs’ objectives. The audit examined whether the Reconstruction Authority:

• effectively planned the administration of both programs
• is effectively delivering the RHP
• is effectively delivering the RLP.

For the period prior to the Reconstruction Authority assuming responsibility for these programs (August 2023), the audit considered the role of the former NRRC and the Department of Regional NSW in establishing and administering both programs.

The Resilient Homes Program (RHP) and the Resilient Lands Program (RLP) were not effectively planned before implementation. The lack of detailed planning led to significant delays and increased the risk that program outcomes will not be achieved. While the Reconstruction Authority is targeting RHP funding to properties assessed as having the highest flood risk, delivery of some elements of the RHP, particularly the resilient measures stream, have been delayed. This has impacted timely access to support by flood affected residents. The Reconstruction Authority has not effectively administered the RLP to meet timeframes and it is yet to deliver any land for housing.

The buyback stream of the RHP will not meet its original funded target of 1,300 voluntary buybacks. The Reconstruction Authority attempted to meet this target before it re-profiled program funding to deliver 1,000 voluntary buybacks and increased the number of resilient measures from 420 to 600.

Administration of the Resilient Homes and Resilient Lands Programs was not effectively planned before implementation

Key elements of planning were not undertaken for the programs prior to their commencement which had a significant impact on their ongoing implementation and led to delays. Detailed project plans, including timelines and key milestones, were not developed for either program prior to program commencement. Governance arrangements were established early for the RHP but formal governance arrangements were not in place for the RLP until October 2024. Although key risks were identified for both programs at establishment, detailed risk mitigations were not in place for either program prior to commencement. There was also no monitoring and evaluation plan in place and this was not developed until late in the delivery of both programs.

There was no business case or cost-benefit analysis to inform the design and establishment of either program. Such analysis is intended to inform the investment decision, demonstrate that adequate due diligence and thinking was undertaken, and to inform funding approval.

The approach adopted in June 2023 for assessing and prioritising homes ensures funding is distributed to homes assessed as having the highest flood risk

Eligibility criteria were developed at the outset of the RHP and are detailed in the program guidelines. A mapping exercise was conducted to support development of the criteria. Flood mapping from across the Northern Rivers was gathered and used to evaluate the location of homes in the highest risk locations. An independent review released in April 2024 found that the program was using the best available flood and floor-level data, and that the methodology was aligned with recommended risk assessment principles. In December 2024, the Reconstruction Authority updated its prioritisation approach based on more recent data. This mapping approach has ensured that funding is distributed to homes assessed as having the highest flood risk.

The Reconstruction Authority will not meet its original funded target for the buyback stream and is increasing its focus on the resilient measures stream

Based on the initial $700 million of funding for the RHP, the Reconstruction Authority estimated that the program would be able to support approximately 1,000 buybacks and 370 resilient measures. Following the increase in the program budget to $880 million, the Reconstruction Authority estimated that it would be able to support 1,345 buybacks and 420 resilient measures. The Reconstruction Authority treated these revised figures as targets.

In August 2025, the Reconstruction Authority re-profiled program funding to work towards 1,000 buybacks and 600 resilient measures. At that time, 925 properties had been approved for a buyback and 682 buybacks had been finalised. Of the 925 properties approved, 87% (803) had accepted with 4% (39) declining the offer, and the remainder considering the offer.

This change was guided by community and local council feedback to redirect more funding to the resilient measures stream and increase access to the program. As part of re-profiling the budget, the Reconstruction Authority also identified that the remaining budget was not sufficient to support the targeted 1,345 buybacks and reduced this target to 1,000. The Reconstruction Authority attempted to meet the target of 1,345 buybacks prior to making the changes to the program. Before determining to reduce the targeted number of buybacks, the Reconstruction Authority had contacted 1,300 homeowners who had either applied for a buyback or were identified as potential applicants. However, some of these homeowners did not apply, with some also deemed ineligible after applying.

Delivery of the Resilient Homes Program has been delayed which has limited support to flood-affected homeowners during recovery

The request to the Commonwealth Government for the first tranche of co-funding in August 2022 advised that the $800 million for the RHP would be spent by June 2024. Limited program development work had been undertaken at the time of this request. Following an application for extension of time made in late 2024, the Commonwealth Government approved an extended deadline to June 2027.

There have been persistent delays in the RHP. Early in the RHP, it became clear that additional policy work was required to address some of the key issues that were identified during program implementation. These included procedures for home relocations, gifting homes for relocation and a large lot policy for land greater than 2 hectares. The former NRRC developed these policies while delivering the program, leading to delays in program delivery. Changes to the model used for delivering the resilient measures stream also led to delays. This change in approach meant that the first resilient measures payment was not made until December 2023, 21 months after the first of the major flood events in February 2022.

The Reconstruction Authority has developed plans for the future use of most land bought through the Resilient Homes Program

The Reconstruction Authority is responsible for determining the future use of bought-back land. The RHP guidelines state that zoning restrictions will be placed on residential properties purchased through the buyback stream, to prevent future residential use. The former NRRC and the Reconstruction Authority did not consider future planning for the land and properties other than these rezoning requirements as part of the design of the program.

In July 2024, the Reconstruction Authority began planning for future land use in the Northern Rivers and has since worked with local councils and state government departments, as well as other stakeholders, to determine preferred land use. In August 2025, project plans for future land use in Lismore and South Murwillumbah were established, outlining the objectives, budget considerations and key milestones for the preparation of precinct plans and planning proposals in these locations. Throughout late 2025, further work was undertaken on other locations across various Northern Rivers Local Government Areas (LGAs).

As engagement with the program is voluntary, this has resulted in individual parcels of land being bought by the Reconstruction Authority that are isolated from other purchased sites. This has made precinct planning difficult in some areas. The Reconstruction Authority does not have a plan for these separate vacant lots, but it has engaged with councils on available land and has started to work on a divestment approach.

The Reconstruction Authority has not delivered the Resilient Lands Program to established timelines and the program is significantly delayed

There have been significant delays in the RLP, and the Reconstruction Authority is yet to deliver any land for housing. The Resilient Lands Strategy took over a year to be finalised after the draft was exhibited to the public. It establishes expected timelines for the delivery of each of the sites that form part of the RLP and the Reconstruction Authority has not met these timelines.

The Reconstruction Authority reviewed timelines for the RLP projects in May 2025 and again in October 2025, and pushed back the expected dates of completing the planning and DA approval steps for most sites. In addition, some sites will have a delayed completion date compared to what is published in the Resilient Lands Strategy. Nine of the 12 sites are now due to be completed by the end of 2026 or 2027, with the remainder planned to be completed in 2028. This has resulted in the planned completion of half of the sites being delayed, with delays ranging from 6 to 21 months. Some lots are planned to be available for purchase before these completion dates.

The land identified in the Resilient Lands Strategy is forecast to meet estimated demand, but delays in the program put this at risk

The hectares of land needed to support people leaving flood-affected areas through the RLP in each LGA was estimated. The RLP was designed to meet the estimated required land across each LGA, and the number of lots planned to be released through the program will exceed the number of destroyed and severely damaged homes in all LGAs except Ballina Shire Council. The Reconstruction Authority anticipates a total of 4,382 homes or lots will be delivered through the implementation of the Resilient Lands Strategy. The Reconstruction Authority, in conjunction with partner agencies, is responsible for the direct delivery of 612 of these homes or lots.

The former NRRC categorised the demand as an immediate need and sought to fulfil it by early 2028, that is, within 5 years from April 2023. As part of the selection process for the land, the former NRRC chose only sites that it assessed could be delivered within that 5-year period. Delays in the program have put the Reconstruction Authority’s ability to meet this demand in a timely manner at risk.

No lots or homes have yet been delivered through the RLP. So, while the RLP aims to eventually deliver the housing that was identified at the outset of the program, it is not yet fulfilling its role of supporting flood-affected residents in the Northern Rivers. Given the delays in the RLP, the program has not offset the reduction in housing created by the RHP buyback stream.

By September 2026, the NSW Reconstruction Authority should:

1. identify and act on opportunities to accelerate the delivery of sites under the Resilient Lands Program, to ensure current program timelines and targets are met.

By June 2027, the NSW Reconstruction Authority should:

2. work with councils to finalise and implement plans for:
   1. each of the areas with significant numbers of buybacks
   2. parcels of bought-back land that are isolated from other buyback sites
3. document lessons learned to inform planning for future disaster resilience, recovery and adaptation programs, including land use planning activities
4. ensure readiness for future natural disasters by:
   1. developing and implementing resilience and adaptation programs in anticipation of natural disasters and outside periods of declared natural disaster
   2. planning in advance for the timely implementation of disaster recovery programs, including meeting requirements for business cases and cost-benefit analyses.

By March 2028, the NSW Reconstruction Authority should:

5. complete and publish the evaluation and ex-post cost-benefit analysis of the Resilient Homes Program and the Resilient Lands Program.

The RHP provides financial support to flood affected homeowners for voluntary buybacks, as well as measures to increase resilience, such as home-raising or rebuilding housing with flood-hardened materials. Funding for the program was received in 2 tranches: $700 million approved in September 2022, and $180 million approved in 2024. Both tranches were co-funded by the Commonwealth Government and the NSW Government

To be eligible for the program, properties must be located in one of the Northern Rivers Local Government Areas (LGA) and have contained a lawful residential dwelling at the time of the flood event. In addition, the homeowner must be the registered proprietor of the property at the time of application and immediately before the beginning of the first flood event in February 2022. Also, homes are only eligible for the program if the primary residential dwelling footprint was inundated by flood waters in the flood event or affected by landslide as a result of the event.

Properties located in the Northern Rivers that are eligible for the NSW Voluntary Purchase Schemes (VPS) are also eligible for a buyback under the RHP. The VPS is a buyback program administered by the Department of Climate Change, Energy, the Environment and Water. It aims to remove at-risk people from high flood hazard areas.

In addition to these eligibility criteria, the Reconstruction Authority developed a prioritisation approach informed by flood mapping for the eligible homes. Buyback zones were classified into 2 different eligibility categories. Category A consists of highest priority areas for buyback, and category B consists of areas where a buyback is also recommended, but is of lower priority than category A areas. Category A sites were considered for a first round of funding and category B sites were considered for a second round of funding.

During the development of the prioritisation approach, it was identified that it may not be possible to purchase all category B properties within the program’s funding envelope, and so a sub-prioritisation approach was developed for these areas. This approach considered the areas’ socio-economic disadvantage and evacuation constraints, because these 2 factors influence the risk to life during a flood event. Category B zones were assigned a priority level ranging from 1 (highest priority) to 8 (lowest priority).

For homes outside categories A and B, an additional assessment methodology was also developed to determine which homes should be prioritised for the resilient measures stream, which consists of home-raising and rebuilding activities. The prioritisation categories for the program are outlined in Table 1.

Source: Audit Office of NSW analysis.

The RHP began customer outreach in November 2022. Buybacks for the program have been delivered in 2 phases, starting with a pilot program that began in February 2023, and then the main phase that started in June 2023 and has since continued. As at 31 March 2026, a total of 793 properties had settled, with the program now anticipated to support a total of approximately 1,000 buybacks. As at February 2026, the spend on the buyback stream was $581.5 million. This includes the value of the buybacks as well as make good and demolition activities. The number of buybacks over time is outlined in Figure 1.

The RLP is a $100 million program that aims to supply new land and housing for flood-impacted residents through a mixture of land purchases and acceleration of land availability for future development. The program began in October 2022 with a request for Expressions of Interest from landholders to propose suitable land for the program. These were reviewed for suitability and shortlisted to form a draft Resilient Lands Strategy which was exhibited publicly in June 2023. The strategy was refined based on community feedback, further feasibility studies and due diligence on the shortlisted sites.

The Resilient Lands Strategy was published in August 2024. It consists of 12 priority sites that aim to accelerate the delivery of housing in the region using a variety of interventions including the purchase of land, delivery of housing in conjunction with Landcom and Homes NSW, and the funding of enabling infrastructure to support private development of housing. The Reconstruction Authority anticipates a total of 4,382 homes or lots will be delivered through the implementation of the Resilient Lands Strategy. The Reconstruction Authority, in conjunction with partner agencies, is responsible for the direct delivery of 612 of these homes or lots. Table 2 contains a summary of the expected completion dates and numbers of new homes for each of the 12 priority sites. The Reconstruction Authority anticipates that the first new homes will be delivered under the program by August 2026.

Note: All dates are calendar year.

Source: Resilient Lands Strategy and Audit Office of NSW analysis.

Key dates for the RLP can be seen in Figure 4.

There was no business case or cost-benefit analysis to inform the design and establishment of the Resilient Homes and the Resilient Lands Programs

While the Resilient Homes Program (RHP) and the Resilient Lands Program (RLP) are disaster adaptation and recovery rather than response programs, they were established shortly after natural disasters, that is, at the same time as response efforts and with some urgency. Current business case guidelines allow for a short-form assessment in cases of emergency response, however the guidelines in place at the time that these programs were established required a full business case.

There was no business case or similar investment justification for the RHP or the RLP to support the original or subsequent funding request. All proposals for NSW Government funding should be evidence-informed and supported by business case principles. The 2018 NSW Government Business Case Guidelines (the guidelines) were in place when the initial funding request was submitted. These guidelines required agencies to prepare business cases for all types of investment proposals to inform investment decisions, demonstrate that adequate due diligence and thinking was undertaken and obtain approval including for funding. Business cases had to include:

• a clear rationale for agency and government action
• a cost-benefit analysis
• evidence that appropriate options were financially viable
• demonstration that the delivery agency had the capacity and capability required to procure, implement and maintain the proposal
• confidence that the proposed solution was deliverable.

These matters were not addressed in detail as part of the initial funding request in September 2022 to ensure that the investment decision would deliver the best objectives, outcomes and benefits.

In February 2023, the NSW Government issued its Guide to Cost-Benefit Analysis which states that it is mandatory to complete a cost-benefit analysis when producing a business case to support government funding. A cost-benefit analysis should be incorporated into a business case to define the expected costs of the program in detail and compare these with other options to establish the most cost-effective use of resources. An ex-post cost-benefit analysis allows for costs and benefits to be quantified after the program has commenced.

In October 2023, the NSW Government implemented the NSW Treasury Disaster Cost-Benefit Framework (the framework), which states that, in response to a disaster, it may be impractical to complete a business case, including a cost-benefit analysis, prior to funding. In these cases, the framework stipulates that where a disaster resilience initiative valued over $10 million is not supported by a business case and cost-benefit analysis, it is mandatory to complete an evaluation, including an ex-post cost-benefit analysis, within a reasonable period of time.

When additional budget was sought for the RHP in May 2024, the NSW Reconstruction Authority (the Reconstruction Authority) did not develop a business case to justify the additional expenditure or to provide further detail on the program, nor did it fulfil the alternative requirements set out in the framework. However, the agency made changes to program delivery in response to community feedback. The new funding request supported both additional buybacks and resilient measures, in line with the community feedback. The request to the National Emergency Management Agency (NEMA) outlined the number of properties that would be bought back if additional funding was provided. However, there was no further analysis that would substitute for a business case.

The Reconstruction Authority has not undertaken an ex-post cost-benefit analysis as required by the guidelines, though one has begun. While the Reconstruction Authority has reviewed some aspects of the program, this was not equivalent to an ex-post cost-benefit analysis.

The Reconstruction Authority had to submit an assistance request form to NEMA to access funding under the Disaster Recovery Funding Arrangements (DRFA). This submission met the Commonwealth Government’s information requirements and included detail on the amount of funding with a cost breakdown per financial year, a description of the initiatives, and the administrative arrangements for the programs. The Reconstruction Authority also considered some potential benefits that may arise from the program, such as reduced insurance premiums for people in the Northern Rivers, but these were not quantified. While the submission to NEMA provided some information relevant to a business case, it was not sufficient on its own to fulfil the requirements of the guidelines.

Data and evidence informed the assessment of demand for the Resilient Homes Program

Design of recovery programs should be based on evidence and tailored to the context and needs of disaster-affected communities. Collection and analysis of data relating to disaster impact and recovery are necessary to understand community needs and how they can be addressed. Relevant data was collected and used to inform the RHP’s approach.

The initial demand for the RHP was assessed using State Emergency Service (SES) data in conjunction with flood mapping. The estimate was refined once the program started, using data collated from applications to the RHP, the Flood Property Assessment Program (FPAP) and Disaster Relief Grants (DRG). Councils were also consulted on properties that were eligible for their Voluntary Purchase Schemes (VPS) which were included as eligible under the RHP guidelines.

The Queensland Reconstruction Authority (QRA) was also consulted during program development. The QRA had developed a similar program, the Resilient Homes Fund, in response to the 2021-22 Southern Queensland flood events. Both the NSW and Queensland programs are designed to repair, retrofit, raise or buy back eligible properties. The QRA program does not have an equivalent land supply program like the RLP.

In the course of implementing the RHP, an approach was developed to inform the prioritisation of areas for inclusion in the RHP’s buyback and resilient measures streams of the RHP. This prioritisation framework was informed by the most recently available flood mapping to ensure that homes in higher risk areas were prioritised for buybacks.

Assessment of demand was further refined using this prioritisation framework. The prioritisation framework identified the number of properties within the eligibility categories and compared this with the number of properties registered for the RHP, the FPAP and DRG, as well as properties identified through the pilot program and VPS properties. This analysis was updated and provided to the RHP Steering Committee in May 2023 and November 2024.

Evidence of flood risk informed eligibility for the Resilient Homes Program

The design and ongoing development of both phases of the RHP have been informed by evidence of flood risk. In determining eligibility for the RHP’s pilot program in early 2023, the former NRRC primarily considered 3 factors: the severity of damage from the 2022 flood event, whether homes were in the 20% or 5% Annual Exceedance Probability flood zone¹, and whether the property had previously been identified through a VPS.

Since June 2023, mapping developed by a specialist consultant has been used to determine program eligibility. This mapping used the most recently available flood mapping from relevant councils to determine the expected flood depth and velocity across a range of scenarios. Homes were then prioritised on the basis of risk according to these factors.

The Reconstruction Authority convened a panel to undertake a peer review of this flood mapping, which was published in April 2024. The review was largely positive about the maps that had been developed for the RHP, though it did identify a number of potential improvements. In response to these recommendations, the Reconstruction Authority made changes to the maps, which expanded the eligibility for buybacks to some areas that had previously been excluded.

The Reconstruction Authority undertook research to identify the demand for land in the Northern Rivers but did not consider the impact of the Resilient Homes Program

To inform the RLP, the Reconstruction Authority used a range of data and information early in the program to identify the potential housing need in the Northern Rivers, including identifying the extent of the housing shortage prior to the 2022 flood events. This included academic research that identified issues with housing availability in small towns and remote communities, a lack of housing for large families and a lack of accessible housing for older people or people with a disability. The research also identified decreasing availability of affordable rental accommodation as an issue.

The former NRRC worked with the former Department of Planning and Environment to design a data platform that could be used to identify the housing shortfall in each Local Government Area (LGA). Key insights included information about dwelling approvals and dwellings built in each year, as well as changes in housing price and land values. This information was drawn from the Australian Bureau of Statistics’ data reporting.

These sources provided detailed information about the extent of the housing shortage in the Northern Rivers prior to the floods, but they did not identify the expected demand that might be generated through the RHP buybacks. To assist with modelling potential demand, the number of homes that had been impacted, severely damaged or destroyed by the floods were identified. On the other hand, the RHP eligibility mapping considered flood mapping rather than severity of damage. This means that the modelling used to estimate demand to inform the RLP was not an appropriate substitute for estimating the take-up of the RHP.

To supplement this demand modelling, in mid-2023 a survey was created for RHP participants so that the Reconstruction Authority could better understand their housing needs. Of the buybacks that had been processed by 21 November 2024, 125 participants were interested in RLP land. There was also significant demand for sites where individuals could relocate bought-back homes. In the survey, RLP registrants indicated where they would like to live. An analysis of this information has allowed the Reconstruction Authority to identify that the most popular LGAs for RLP land (among RHP participants) is in Lismore and the coastal LGAs. The demand was significantly lower from RHP participants for land in Richmond Valley, Kyogle and Clarence Valley councils.

The Resilient Homes Program’s objectives have remained consistent over time

The RHP’s initial objective, which was first documented in July 2022 was broad and lacked specificity. However, by the time the program guidelines were developed before the pilot round in January 2023, the objective was clearly defined and it has remained largely consistent over time.

Design documents from July 2022 set out objectives that covered what were to later become the separate RHP and RLP programs. At that time the objective for both programs was ‘To build the disaster resilience of new and existing homes in flood high risk areas’.

In January 2023, the first guidelines for the RHP were published. The aim was to provide ‘financial assistance to homeowners to improve the flood-resilience of residential properties in the Northern Rivers’. The RHP’s objectives have remained consistent since. In November 2024, the Reconstruction Authority updated the program guidelines to show how this would be achieved, including: reducing the number of homes in severe-risk flooding areas; raising homes up to minimise the frequency of potential flood related damage; and using design techniques, construction materials and repairs to help homes better withstand flooding.

The Resilient Lands Program’s objectives were not clear at the outset and changed throughout, leading to uncertainty about the program’s approach

There was no clear description of the RLP’s objectives at the time that funding was initially sought for the program in September 2022. The RLP’s objectives have changed since they were first outlined in December 2022, and were not finalised until the Reconstruction Authority released its Resilient Lands Strategy in August 2024.

As part of the program’s governance framework developed in December 2022, the objectives of the program were initially to ‘identify and develop a pipeline of housing and land supply’, to ‘fast-track supply to assist high risk communities impacted by floods’, and to ‘build back better by helping to address underlying affordability and supply issues in the region to create a resilient and adaptable region.’

By March 2023, the objective had changed. A scope and problem definition document that set out the purpose of the RLP was circulated to the Resilient Lands Expert Panel, which was tasked with assessing Expressions of Interest in the RLP. The document stated that the primary objective of the Resilient Lands Strategy, the key strategic document for the RLP, was ‘to identify land to relocate residents eligible for voluntary purchase under the former NRRC’s Resilient Homes program.’ Later expressions of the RLP’s objectives do not include any connection to the RHP, but it is clear that there was a conceptual link between the 2 in the early stages.

While the draft Resilient Lands Strategy, released in May 2023, does state that the RLP may help to alleviate some of the underlying housing pressures in the region, this was no longer part of the program’s objectives. There is no mention of the RHP in the stated objective. The Resilient Lands Strategy sets out that the aim of the program is ‘to identify and accelerate delivery of land suitable for residential development’, including ‘to provide flood affected residents with housing options to support their relocation’. This represented a move away from delivery of housing as part of the RLP to focusing solely on the delivery of land.

By the time the Reconstruction Authority released its final Resilient Land Strategy in August 2024, the program’s aim was ‘to accelerate the delivery of new land and housing in the Northern Rivers to provide flood affected residents with housing options to support their relocation, and to improve the resilience of the region.’ This represented a return to housing being included as part of the RLP and, for the first time since December 2022, also included improving the resilience of the region. As with the draft strategy, addressing underlying housing pressures was no longer part of the program’s objectives.

This series of changes led to a variety of approaches being pursued within the program rather than one consistent approach. It has also resulted in uncertainty about the connection between the RHP and the RLP. There was no documented rationale for the changes to the objectives. Setting the program objectives early may have meant a more consistent approach throughout the life of the program, allowing the Reconstruction Authority to achieve the RLP’s objectives in a more timely manner.

Key milestones for the Resilient Homes and Resilient Lands Programs were not set at program establishment

When the RHP and the RLP were being designed in late 2022, timelines and key milestones were not set as part of program establishment. As noted above, there was no business case for either program. However, some timelines were established for each of the programs as they were being delivered.

Early in the design of the RHP, some key dates were set out for its launch, but these did not include many of the key steps that were needed beforehand, such as the development of program guidelines and eligibility criteria, or the process for applying for Commonwealth Government co-funding. Additionally, they did not include detailed milestones for the RHP. These were not developed until around February 2023, by which time program establishment was largely complete, and the document focused on the delivery dates of key RHP stages. A full, detailed project plan was not developed to inform the implementation of the program or to support achievement of the delivery dates.

In December 2024, the Reconstruction Authority designed a Program Action Plan for the RHP, which outlines measures and outcomes for the program and contains milestones for both RHP streams.

Detailed timelines for the RLP were not created when the program was being designed in late 2022. The original co-funding request to the Commonwealth Government in August 2022 included funding for acquiring land to increase supply. The Reconstruction Authority originally expected this funding to be spent by June 2024. Given the amount of work that was required to assess potential land, identify selected sites, consult with stakeholders and then begin acquisitions and works, it was unlikely that this timeframe could be achieved. However, the DRFA states that work must be completed within 2 years and so it is understandable that this was selected as the initial end date for the program.

While detailed schedules were not developed for key aspects of the RLP’s work, some high-level milestones were created in October 2022. The initial plan was to have assessments of the first tranche of RLP sites completed by the end of March 2023, with all assessments completed by the end of June 2023. Project delivery was planned to begin around April 2023.

The timeline for developing the Resilient Lands Strategy, a key deliverable for the RLP, established clear deliverables in March 2023. This set out the work required and the months by which it was scheduled to occur. This was planned to end with the public exhibition of the draft Resilient Lands Strategy in May 2023 and the release of the final Resilient Lands Strategy in August 2023, which would be the beginning of the investment and delivery phase of the RLP.

¹ The Annual Exceedance Probability is the probability that a flood will exceed a given level in any given year. A 20% AEP is the equivalent of a one in 5-year flood.

The Resilient Homes Program had governance arrangements in place from February 2023, but the Resilient Lands Program did not have a Steering Committee until October 2024

Governance arrangements for the RHP were designed and implemented within 4 months of the funding announcement for the program. A Steering Committee was established in February 2023. The Steering Committee is responsible for: guiding and providing advice on the governance and delivery of the program; monitoring and making decisions on the strategy, key policies and approaches; and the finances of the program. In fulfilling these functions, the Steering Committee provided oversight of the RHP from early 2023 and continues to do so.

The Steering Committee is made up of key program staff, including senior staff with decision-making authority who attend regularly. In addition, staff from NEMA, other relevant state entities and key delivery partners attend either on a regular basis or as their input is required. This has allowed the Steering Committee to act as an avenue for collaboration with other relevant entities.

In December 2022, an overarching governance framework for the RLP was designed. This framework proposed the establishment of a Lands Governance Group, which would act as a decision-making body for the RLP and would ensure that the program objectives were achieved. There is no evidence that this group was ever established and no equivalent structure was put in place until October 2024. A Program Working Group provided some program governance throughout 2023 and 2024, but this group operated without a Terms of Reference and did not include the senior leaders with decision-making authority that were intended to be in the Lands Governance Group. This lack of program governance contributed to delays in delivering the program, particularly in relation to the preparation of the Resilient Lands Strategy.

There was no effective governance framework for the RLP until October 2024 when the Reconstruction Authority established the RLP Steering Committee based on a formal governance structure and Terms of Reference. The Terms of Reference included guiding and providing advice on the governance and delivery of the program, as well as monitoring and making decisions on the strategy and finances of the program. The RLP Steering Committee fulfilled these functions, providing oversight of the RLP.

Membership of the Steering Committee includes more senior representatives than the original Program Working Group, which allows for more effective oversight by staff with decision-making authority and greater involvement of key stakeholders. Key senior staff responsible for the RLP are involved, as are other senior staff from relevant branches of the Reconstruction Authority. Other agencies that are involved in delivering select sites are also part of the Steering Committee meetings. These include relevant councils, Homes NSW, Government Architect NSW, and the Department of Planning, Housing and Infrastructure.

The Reconstruction Authority has mechanisms in place to ensure regular engagement with the Resilient Homes Program stakeholders, but consultation has not always been timely

The Reconstruction Authority has developed a range of agreements and governance arrangements for the RHP to ensure that the views of councils, the Commonwealth Government and other key delivery partners are incorporated into the program. As noted above, some of this consultation occurs through the Steering Committee but other avenues have also been established.

The Reconstruction Authority developed communications and engagement plans for different aspects of the RHP including the resilient measures stream and the relocation and gifting of homes. These plans aim to increase community awareness and local business involvement in the program. The plans outline the key stakeholders and a communication and engagement schedule for them. This engagement is supported by fact sheets for homeowners, contractors and buyers of relocatable homes, which are available on the Reconstruction Authority website.

Mechanisms for consultation with councils include a Community Leaders Forum, which allows the Reconstruction Authority to consult and share information with key elected officials across the Northern Rivers. It is an advisory forum with no decision-making responsibility and enables community leaders to provide guidance on all region-wide recovery programs, including the RHP. During the development of the RHP, local councils were also consulted about eligible homes under the existing VPS programs. These homes were included in the buyback stream and the councils’ VPS lists were used in demand estimation.

Regular meetings have been held with local councils to provide updates on Northern Rivers programs, including the RHP. These meetings also allow councils to pass on feedback and questions they have received from their communities, so that the Reconstruction Authority can engage directly with these stakeholders.

Although formal mechanisms are in place, consultation has not always occurred in a timely fashion. While council flood mapping was used in creating the maps, consultation with some councils on flood mapping did not happen until shortly before the maps were published, limiting the ability of those councils to provide input and understand the mapping in their areas.

Risks to both programs were identified but not fully mitigated

Some high-level risks to both programs were first identified in July 2022. This did not include measures to address these risks, which mostly related to program design rather than to program delivery.

In August 2022, key strategic, operational and program-level risks were identified for both the RHP and RLP. These included risks that were rated ‘high’, ‘very high’ or ‘extreme’. Key mitigation opportunities were also identified, which are techniques and strategies used to minimise risk. These mitigations were not linked to specific risks and were not capable of mitigating all the risks that had been identified.

The former NRRC created an enterprise risk register in September 2022, which contained some risks that were relevant to the RHP and RLP, particularly in relation to program funding. However, there was no detailed risk management plan for either program at that stage.

A risk register for the RHP was first developed in March 2023, and has been regularly updated since. This register is comprehensive and identifies a range of risks that are critical to program delivery, including a number of risks that have been realised during program delivery. Key risks identified include the risk of reputational damage due to perceived unfairness in program allocation, and a range of risks that could cause delays. Mitigations are designed for each risk, including identifying further actions where the residual risk remains too high.

Mitigations identified in the March 2023 RHP risk register were not always implemented. For example, the register identified a risk to the efficiency of the program caused by the large geographical area it covered, which was to be mitigated with the use of cost-benefit analyses when making decisions.

However, there is no evidence that a cost-benefit analysis was developed for decisions of this nature. Another identified risk was project design not being fit for purpose, for which the mitigation was to develop key program documentation. While documentation was designed for key processes including program guidelines, business case documentation was not completed, and some program policy documents had to be developed while the program was being delivered.

The RLP Steering Committee was advised of risks after its creation in October 2024 and at subsequent meetings, though these were not included in a formal risk register at the time.

A formal risk register was first developed for the RLP in 2025. The risks outlined in this register are different to those reported to the Steering Committee at its meetings. They are risks and mitigations relating to meeting program objectives and timelines, and legislative, regulatory or policy obligations.

As the RLP risk register was not developed until 2025, the time it has taken to identify these risks and mitigations has meant that some of these risks have been realised. Additionally, some of the mitigations identified in the December 2025 risk register have not been effective. For example, the risk register identified a risk to meeting the program’s objectives and timelines due to conflicting priorities between the RLP and private interests. However, the mitigations outlined for this risk relate to communication between the RLP, the RHP and other programs, and maintaining relationships with enabling divisions. These mitigations do not relate to the Reconstruction Authority’s relationship with private entities and the risk has not been effectively mitigated.

The management of risk throughout the life of the RHP and the RLP is discussed in subsequent chapters.

Probity plans were developed for both programs shortly after their commencement in September 2022

A probity plan was developed for the RLP in December 2022 and for the RHP in January 2023. The purpose of a probity plan is to ensure processes are fair, transparent and ethical. The plans set out how probity is managed, including the role of the probity advisor, the roles and responsibilities of staff in relation to probity, and the controls that are in place to ensure that probity is maintained. Staff across a number of key RHP roles, including assessments and approvals, also received training in the probity expectations and controls for the program.

Independent probity advisors have been appointed for both programs. They are responsible for providing advice to resolve any probity issues that arise, providing advice in relation to probity risks and risk management strategies, as well as approving key documents.

The RHP probity plan outlines a series of implementation controls that align with key probity principles including fairness and integrity, consistency and transparency of process and identification and management of conflicts of interest. The Reconstruction Authority has implemented these controls including publishing key program documentation to ensure program processes are transparent, maintaining a decision register for the program and maintaining a conflicts of interest register.

The RLP probity plan lists controls relevant to that program. The Reconstruction Authority implemented these controls including publishing key program documentation to ensure program processes are transparent, maintaining records of the land suitability analysis and maintaining a conflicts of interest register.

The Reconstruction Authority has a Code of Ethics and Conduct (the code) that defines conflicts of interest and contains a high-level overview of the procedure for identifying and managing conflicts of interest. The code states that conflicts of interest must be disclosed as soon as the individual is aware of the conflict. Managers are responsible for documenting conflicts of interest, considering actions to take, approving management plans to eliminate or manage the conflict and monitoring compliance with the management plan.

The Conflicts of Interest Policy supports the code and requires all staff to make an annual declaration of any conflicts of interest, including a statement that no conflicts exist. Declarations are recorded in the Reconstruction Authority Conflicts of Interest Register, which is managed by the Governance Branch. Specific declarations were documented for staff working on the programs.

The Reconstruction Authority did not develop outcome indicators for the Resilient Homes Program until May 2025

Monitoring and evaluation are most effective when they are considered during the design stage of a program and incorporated into its planning. A program logic model should be developed to set out inputs, activities and outputs, linking these to the program’s outcomes and benefits. While the Reconstruction Authority developed elements of this, such as output indicators, at an early stage, it did not define program outcomes as part of program development.

The Reconstruction Authority did not develop a program logic model until May 2025. The model outlines the key objective of the RHP, as well as recovery objectives and corresponding outcomes. These disaster objectives and outcomes are then linked to program activities and defined measures. The measures include improved resilience and reduced financial impact of future events. Other measures are defined by the number of houses purchased under the buyback stream, or raised or rebuilt under the resilient measures stream. However, these measures do not have defined targets, limiting the Reconstruction Authority’s ability to use them to measure the RHP’s success.

Additionally, although the Reconstruction Authority measures its performance against defined outputs, there is no evidence that it collects information to determine whether outcomes have been achieved. As the Reconstruction Authority did not develop performance indicators until over 2 years after the RHP began, the agency could not identify the data it would need to assess the program’s performance until 2025. For example, information has not been collected about the housing outcomes of individuals whose homes have been bought back. There is a risk that key information has not been collected to assess if the program is meeting its objectives and targets.

A monitoring and evaluation plan was developed late in the delivery of the Resilient Homes and Resilient Lands Programs

A monitoring and evaluation plan was not developed for either the RHP or the RLP when the programs were established. The Reconstruction Authority developed an evaluation plan for the RHP throughout 2024 and 2025 which consists of a process, outcome and economic evaluation.

The process evaluation began in mid-2025 and will cover program design, implementation and stakeholder engagement. The recommendations of this evaluation will focus on key challenges, learnings and implications for policy and practice for future resilience programs. Developing the evaluations so late in the program’s lifecycle means that there will be little opportunity to incorporate lessons learned into the program and that relevant data may not have been collected to inform the evaluation.

The Reconstruction Authority developed a draft evaluation framework for the RLP that was presented to the RLP Steering Committee in November 2024. The plan was to partner with a local research organisation to conduct the evaluation. The research organisation chose not to submit a proposal to undertake this work, leaving the program without a planned evaluation. However, in November 2025 the Reconstruction Authority issued a request for quotation for an evaluation of the RHP, the RLP and the FPAP. The 3 programs have been grouped together under one project but will be evaluated individually.

As part of developing its draft evaluation framework for the RLP, the Reconstruction Authority identified a range of performance indicators for the program. The status of these indicators is unclear, as there is no indication that these were formally approved and adopted for the program.

In addition to the above, in 2024 the Reconstruction Authority commissioned a best practice framework for integrating housing considerations across the disaster planning and management process. While not a full evaluation, this project identified key lessons and challenges relating to the ongoing housing response and recovery process in the Northern Rivers. It also identified a range of strategies to address these challenges for future disaster responses.

The Reconstruction Authority has also engaged researchers to develop findings to improve the responsiveness and efficacy of existing and future initiatives to enhance community disaster resilience. The project will also evaluate the relationship between the RHP and the RLP to identify key learnings to improve policy outcomes and customer experiences.