A
Nation Charred: Inquiry into the Recent Australian Bushfires. House of
Representatives Select Committee on the Recent Australian Bushfires (2003)
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Recommendations regarding the Bushfire
Cooperative Research Centre (CRC)
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Recommendation
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Response to
Recommendation
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Recommendation
1
The
Committee recommends that the Bushfire Cooperative Research Centre establish,
as part of its program to implement a single fuel classification system, a
national database that provides information on current levels and rates of
accumulation of fuel loads that takes into account vegetation type and
climate across all tenures of land, including private land where data is
available.
Recommendation
3
The
Committee recommends that the Bushfire Cooperative Research Centre establish,
as part of its program to implement a single fuel classification system,
standards which take into account local conditions including topography and
vegetation type, for determining appropriate dimensions for asset protection
zones.
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Government
Response
The
Australian Government supports the intent of these recommendations to develop
management tools that will provide better information on current levels and
rates of accumulation of fuel loads. The Bushfire CRC has advised that
existing Bushfire CRC projects, particularly the fuel accumulation project,
have the capacity to establish a framework for the database proposed in the Report's
recommendations. Establishment and ongoing maintenance of a national database
is an operational rather than a research function and is therefore outside
the scope of the Bushfire CRC.
A
range of tasks which are relevant in the context of this recommendation was
jointly assigned to the Augmented Australian Police Ministers' Council and
the Local Government and Planning Ministers' Council as part of the COAG
response to the National Inquiry on Bushfire Mitigation and Management. These
Councils could further examine financial and other operational issues
associated with the establishment and ongoing maintenance of the recommended
national database.
The
Bushfire CRC will be asked to provide advice to the Augmented Australasian
Police Ministers' Council and the Natural Resource Management Ministerial
Council on the possibility of accelerating research into fuel loads and
dynamics and the compilation of this data into accessible databases.
The
Australian Government agrees that a nationally consistent framework that
would allow data on fire regime mapping to be shared between jurisdictions
would be a valuable outcome. The framework needs to be developed in the
context of the recommendations of the COAG Natural Disasters in Australia:
Reforming Mitigation, Relief and Recovery Arrangements Report and the
work being undertaken by Geoscience Australia as part of the Disaster
Mitigation Australia Package to develop a national risk assessment framework
for natural hazards. This framework should include development and provision
of models, data and decision support tools.
The
Australian Government will continue to develop national consistency in
datasets relevant to bushfire mitigation and management under the Australian
Spatial Data Infrastructure framework. Geoscience Australia is the lead
agency for Spatial Data Management and provides the Australian Spatial Data
Directory. Vegetation information (National Forest Inventory and National
Vegetation Information System) is another key data set relevant to bushfire mitigation
and management. A recent application of the National Vegetation Information
System has been to link information about vegetation types to fuel loads. The
Bureau of Rural Sciences and the Department of the Environment and Heritage
are lead agencies on vegetation information.
The
Bushfire CRC's research will contribute data that would assist in the
establishment of standards for determining appropriate dimensions for asset
protection zones and the Australian Government requests that it make such data
available to those state and territory agencies which have responsibility for
establishing those appropriate dimensions. A longer-term goal of the projects
in the Bushfire CRC's Program A is to understand better the role of fuel
types and topography. The outcome of Project VESTA being undertaken in
Western Australia has provided some early results that are being validated by
the current Bushfire CRC work plan.
It
is noted that the COAG National Inquiry on Bushfire Mitigation and Management
addresses the issue of data and information relevant to bushfire mitigation
and management in Recommendations 5.1-5.4. The Australian Government supports
these recommendations.
Mr
Gary Nairn – Comment
These
recommendations remain extremely relevant and I understand that such a
national database still does not exist.
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Recommendation
5
The
Committee recommends that the Bushfire Cooperative Research Centre determine
a minimum national standard, taking into account topography and vegetation
type, for adequate access to all public lands including wilderness areas of
national parks for the purpose of effective fire prevention and suppression.
Recommendation
8
The
Committee recommends that the Bushfire Cooperative Research Centre establish
a minimum national standard that is common across all tenures of land for
water access and availability for bushfire fighting.
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Government
Response
The
Australian Government accepts that access is a fundamental issue which all
state, territory and local authorities must address. As programs A and B of
the Bushfire CRC deal with "Safe prevention, preparation and
suppression" and "Management of fire in the landscape", the
outcomes of these research projects will be of significant importance in
addressing these recommendations. However, the issue of access to lands,
including the number, size and maintenance of fire tracks, and the issue of
access to water, are not part of any current research plan of the CRC. The
Australian Government considers these to be areas for policy action by local,
state and territory government rather than areas for research.
The
CRC research programs will provide information on the intensity and rate of
spread of fires under a range of conditions, which will be important
contributions to the access conditions set and implemented by local, state
and territory authorities. While the CRC is not a standard setting
organisation, its findings on these matters will be of relevance to the
appropriate state, territory and local bodies.
Access
the Australian Government owned and/or managed lands and national parks is
determined by the plan of management for each relevant piece of land.
Development of the management plans entails extensive public consultation and
input, where appropriate. Plans are designed to protect the full range of
assets, including management of risks associated with bushfire and the spread
of weeds and disease.
Mr
Gary Nairn – Comment
I
understand that a national standard is yet to be developed.
Recommendation
8 was referred to the states and territories in the Commonwealth's response
and the Bushfire CRC was not given the task. I don't believe the states and
territories have addressed it but it remains in my view a task that is
important to address.
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Recommendation
14
The
Committee recommends that, as part of its study into improving the
effectiveness of prescribed burning, the Bushfire Cooperative Research Centre
establish a national database that includes areas targeted for fuel
reduction, the area of fuel reduction achieved based on a specified standard
of on ground verification and the season in which the reduction was achieved.
The Committee also recommends that in developing this database the
Cooperative Research Centre develop a national standard of fire mapping,
which accurately maps the extent, intensity, spread and overall pattern of
prescribed and wildfires in Australia.
Recommendation
15
The
Committee acknowledges community concerns about smoke pollution as a result
of prescribed burning and recommends that the Bushfire Cooperative Research
Centre pursue its proposed study into smoke modelling.
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Government
Response
While
the Bushfire CRC has advised that it recognizes the potential value of a
detailed database on fuel reduction, the establishment and maintenance of a
national database as proposed in Recommendation 14 is beyond the scope of the
currently funded research program of the Bushfire CRC.
Important
work has been undertaken on fire regime mapping, particularly by the Western
Australian Department of Land Information and the Cooperative Research Centre
for Tropical Savannas Management, complemented by the work of the CSIRO and
Geoscience Australia to develop the Sentinel system. The Sentinel Fire
Mapping website is an internet-based mapping tool designed to provide timely
fire location data to emergency service managers across Australia. Satellite
information is accessed and processed by the Australian Centre for Remote
Sensing, in Geoscience Australia, to provide the key information for the
CSIRO-based Sentinel website. The mapping system allows users to identify
fire locations that pose a potential risk to communities and property.
Standards
for fire mapping and database development need to be developed in conjunction
with work being undertaken as part of the Disaster Mitigation Australia
Package to develop a national risk assessment framework for natural hazards.
This framework should include development and provision of models, date and
decision support tools. The Disaster Mitigation Australia Package was
recommended to COAG, along with other reform commitments and recommendations
in the COAG report Natural Disasters in Australia: Reforming Mitigation,
Relief and Recovery Arrangements. In the 2003-04 Budget the Australian
Government announced new funding of $68.5 million over 5 years for the
Disaster Mitigation Australia Package. The Australian Government's commitment
to the funding was conditional on the states and territories agreeing to the
implementation of consistent risk assessment methodologies and a nationally
consistent approach to data collection and analysis.
The
Bushfire CRC has a number of projects relating to smoke and its effects on
the community and the fire fighters. The Bushfire CRC's smoke dispersion
prediction project is already well advanced.
Mr
Gary Nairn – Comment
Recommendation
14 –The CRC did not have funding for this project and while some related work
was being done, I don’t believe a national database has been prepared.
Recommendation
15 –This was a project being undertaken by the CRC which should be completed.
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Recommendation
16
The
Committee recommends that the Bushfire Cooperative Research Centre monitor
the effect of grazing on mitigating the return of woody weeds to recently
fire effected areas across various landscapes including alpine and subalpine.
Recommendation
17
The
Committee recommends that the Bushfire Cooperative Research Centre conduct
further research into the long term effects and effectiveness of grazing as a
fire mitigation practice.
Recommendation
18
The
Committee recommends that the Bushfire Cooperative Research Centre conduct
further research on the impact of weeds on the flammability of land and the
most economically and environmentally appropriate way to remove weeds after
fire events.
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Government
Response
The
Australian Government agrees in principle to these recommendations and
requests that the Bushfire CRC specifically address them as part of the work
it will undertake with the additional $3 million recently allocated by the
Australian Government; it also understands that grazing has impacts beyond
fire mitigation and that these need to be evaluated as a whole by land
management agencies in developing grazing policies.
The
Australian Government notes that the effect of weeds on the progression of
wildfire will be captured under the Bushfire CRC's program looking at the
understanding of fuel types.
It
is also noted that Australian Governments will continue to implement actions
under the National Weeds Strategy (launched June 1997) to eradicate weeds,
including as appropriate, weed occurrences following a bushfire event. The
Natural Resource Management Ministerial Council, through the Australian Weeds
Committee of the Natural Resource Management Standing Committee is
responsible for overseeing the implementation of the National Weeds Strategy
(refer Recommendation 19).
Mr
Gary Nairn – Comment
Recommendation
16 – Funding from the Federal Government was subsequently provided (2004) for
a project in the Snowy Mountains. NSW National Parks and Wildlife Service would
not allow access to Kosciuszko National Park for the research therefore
research was carried out on private land in the Snowy Plains region which is
surrounded by Kosciuszko National Park. Dr Mark Adams leads that research. It
is still continuing but it requires further funding and applications to the
Federal Government have been unsuccessful as far as I'm aware.
Recommendations
17 and 18 –Other than the project mentioned in relation to Recommendation 16,
I am not aware of any other research in this area.
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Recommendation
51
The
Committee recommends that (under Programs C and E) the Bushfire Cooperative
Research Centre considers the following items as part of a national education
program.
- Introducing
bushfire skills training to schools and libraries.
- Training
various categories of emergency services personnel on their specific role in
the event of a bushfire.
- Ensuring
that those in the fields of building, engineering, urban planning, forestry
and science have a clear understanding of bushfire risk management including
current related regulatory codes and legislation.
- Counselling
prospective land developers in bushfire prone areas on the risks and
necessary protective planning.
- Running
adult education courses on protective planning (including insurance, building
design and maintenance and defence techniques) in the context of bushfires.
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Broadcasting
protective planning issues through the media, television, Internet, radio and
publications.
- Structuring
the community into groups and providing them with guidelines for launching an
initial attack on a bushfire.
- Enclosing
brochures about bushfire protection with rates notices.
- Having
a Bushfire Awareness and Preparedness Day (similar to Clean Up Australia Day)
where the community is encouraged to undertake risk reduction with local
governments coordinating the disposal of hazardous material.
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Government
Response
The
Bushfire CRC has advised that it will consider all these items in developing
its community education program. The major part of the Bushfire CRC's community
education work will seek to enhance and complement the broad range of
educational activities presently undertaken by state and territory agencies.
The Australian Government is providing the CRC with an additional $350,000
per annum over three years under the CRC Program to support these activities
in regional areas.
In
part, Recommendation 51 has been addressed by the Prime Minister's
announcement on 8 September 2004 of the allocation of $6 million over three
years ($2 million per anum) towards the establishment of a Bushfire Awareness
and Preparedness Day, managed by the Attorney-General's Department.
It
is noted that the COAG National Inquiry on Bushfire Mitigation and Management
addresses the issue of school and community-based education in Recommendation
3.1 and related Finding 3.1. The Australian Government supports this
recommendation.
The
Australian Government notes that COAG has requested that the Augmented
Australasian Police Ministers' Council and the Ministerial Council on
Employment, Education, Training and Youth Affairs consider the implementation
of Recommendation 3.1 and report back within 12 months. It has also requested
the Augmented Australasian Police Ministers' Council to collect and share
information on best practice in community bushfire education across
jurisdictions in order to assist jurisdictions to adopt appropriate measures,
having regard to particular risk factors and local conditions.
Mr
Gary Nairn – Comment
Quite
a number of these matters have been taken up in various ways including
funding for a Bushfire Awareness and Preparedness Day, although I don't
believe funding has been ongoing after the initial 3 year funding. Also, the
experiences of the Victorian Bushfires indicate that these sorts of education
and community awareness programs must continue on an ongoing basis.
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Recommendation
53
The
Committee recommends that the Commonwealth Bushfire Cooperative Research
Centre’s research and recommend property protection products and programs
under Program D.
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Government
Response
The
Australian Government agrees with this recommendation and notes that the
Bushfire CRC advises that it is examining these topics within the broad
context of Program C which looks at the social impact and elements of
preparedness of communities at risk. The Bushfire CRC's research outcomes on
the effectiveness of this and other policies will assist to inform the
debate.
While
the Bushfire CRC is not a testing authority, its work programs are
contributing to improved understanding of the scientific basis for
establishing codes and standards. The testing of products against fire and
building standards is undertaken by several organisations such as the CSIRO.
Mr
Gary Nairn – Comment
I
understand substantial work was done by the CRC in this area.
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Recommendation
59
The
Committee recommends that Program E of the Bushfire Cooperative Centre, which
is tasked with the development of the next generation of fire researchers and
dissemination of the Centre’s work, be tasked further to collect and respond
to feedback, particularly from the on ground volunteer levels of fire
brigades, on the practicality of its outputs and their future requirements.
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Government
Response
The
Australian Government supports this recommendation and understands that the
education program (Program E) of the Bushfire CRC will monitor the perceived
effectiveness of all its outputs.
Mr
Gary Nairn – Comment
Some
work up to a certain level was done in this area.
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Recommendations
regarding the Council of Australian Governments (COAG)
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Recommendation
11
The
Committee recommends that the Commonwealth seek to ensure that the Council of
Australian Governments implements arrangements in which greater flexibility
is devolved to local brigade captains in the issuing of permits to burn for
fuel reduction and other purposes in the context of local fire management
plans.
Recommendation
13
The
Committee recommends that the Commonwealth seek to ensure that the Council
of Australian Governments seek agreement from the states and territories on
the optimisation and implementation of prescribed burning targets and
programs to a degree that is recognised as adequate for the protection of
life, property and the environment. The prescribed burning programs should
include strategic evaluation of fuel management at the regional level and the
results of annual fuel management in each state should be publicly reported
and audited.
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Government
Response
In
January 2005 COAG released its response to the National Inquiry on
Bushfire Mitigation and Management.
The
Australian Government notes that COAG has asked the Augmented Australasian
Police Ministers' Council and the Local Government and Planning Ministers'
Council to work together to establish arrangements for sharing information
and enhancing approaches to zoning and classification of fuel management
areas. The Primary Industries Ministerial Council, the Natural Resource
Management Ministerial Council and the Environment Protection and Heritage
Council will also need to be consulted on this work to ensure consistency
with approaches for the management of environmental assets. The Augmented
Australasian Police Minister's Council has been asked to report back to COAG
within 12 months.
With
regard to the role of brigade captains, while the proposal in Recommendation
11 is a matter for the states and territories, the Australian Government
supports the recommendation and encourages relevant state and territory
agencies to act on the recommendation.
The
Australian Government is a significant land manager and contributor to
national land management policy development and program implementation. The
Australian Government recognises the principle that reducing the amount of
fuel in a landscape reduces the risks associated with bushfires by the
reduction in fire intensity and spread and assisting in suppression of the
bushfires.
Prescribed
burning regimes need to recognise the priority importance of the protection
of life and property as well as the conservation of Australia's biodiversity,
especially fauna and flora listed under the Environment Protection and
Biodiversity Conservation Act 1999. The zoning approach should be
implemented on all Australian Government owned and/or managed lands including
national parks, and relevant Ministers will be asked to ensure this occurs.
The
Australian Government agrees that the evaluation of the effectiveness of fuel
reduction in reduction of risk to all assets needs to be given greater
emphasis and priority. The Bushfire CRC is undertaking a major long term
project on fuel reduction and fire regimes to optimise risk management of all
assets in the landscape.
While
noting the COAG National Bushfire Inquiry finding that comparing targeted and
actual annual gross area of fuel reduction within a state/region does not
necessarily provide a good measure of risk reduction, nevertheless public
reporting will assist communities to understand the extent of fuel reduction
burning in their regions.
Inappropriate
fire regimes (whether too infrequent, too frequent or too intense) can be a
major threatening impact to biodiversity. In the case of lands managed by the
Department of Defence, which constitute the greatest proportion of land owned
by the Australian Government, inappropriate fire regimes can also result in
training areas being unable to support preparedness training of the
Australian Defence Force. These inappropriate regimes may also pose an
unacceptable risk from wildfire to Defence facilities and infrastructure.
The
Australian State of the Environment reports and the National Land and Water
Resources Audit and other research support the conclusion that changed fire
regimes are threatening ecosystems across Australia. Therefore, the
Australian Government notes and supports the COAG National Bushfire Inquiry Report's
findings that prescribed burning regimes need to be based on a shared
understanding of the assets and the fire regime needs of the assets within
the landscape. Moreover, prescribed burning regimes need to be managed in an
adaptive style taking account of increasing knowledge of fire within the
landscape.
Mr
Gary Nairn – Comment
The
Commonwealth supported Recommendation 11, but basically said it was up to the
states and territories. I don't believe the states and territories have made
any significant changes in this regard since 2003.
I
believe Recommendation 13 is one of the most critical recommendations, and if
it had been fully implemented following the 2003 fires some of the devastation
in Victoria may have been averted. The recommendation hasn't been implemented
and state authorities are still releasing dubious statistics.
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Recommendation
6
The
Committee recommends that the Commonwealth seeks to ensure that the Council
of Australian Governments implements to a minimum standard adequate access to
all public lands including wilderness areas of national parks
Recommendation
9
The
Committee recommends that the Commonwealth seeks to ensure that the Council
of Australian Governments resolve to increase water access points for
bushfire fighting on public land to the minimum national standard.
Recommendation
10
The
Committee recommends that the Commonwealth seeks to ensure that the Council
of Australian Governments initiate consideration of the relaxation of
restrictions on the movement of fire fighting equipment during declared
emergencies.
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Government
Response
The
COAG National Bushfire Inquiry recommends that COAG adopt a statement of
national principles as the framework for the future direction of bushfire
mitigation and management in Australia. COAG has agreed to refer the draft
national principles to the Augmented Australasian Police Minister's Council
for further development. The Australian Government's Attorney-General will be
asked to take these recommendations into account during the discussions on
national principles.
Access
to state, territory and Australian Government owned and/or managed lands and
national parks is generally outlined in plans of management developed to meet
statutory requirements. The Australian Government believes that all
jurisdictions, when developing plans of management for their respective
national parks, wilderness and other public land ensure that appropriate
definitions of access, including access to water, are included.
Development
of plans for national parks generally entails extensive public consultation
and input, where appropriate. Plans are designed to protect the full range of
assets, including management of risks associated with bushfire and the spread
of weeds and disease. While the management of public lands owned by state,
territory or local governments is a matter for those governments, the Natural
Resource Management Ministerial Council Directions for the National
Reserve System – A Partnership Approach (2005) provides for all national
parks and other reserves in Australia to be managed in accordance with fire
management plans which take into account the purpose of the reservation and
management objectives of the reserve. The document notes that fire management
plans need to consider, inter alia, public safety, the ecological role
of fire, asset protection, landscape effects of fire and indigenous use of
fire.
Mr
Gary Nairn – Comment
Recommendations
6 and 9 were to be referred to Police and Attorney-General Ministerial
Councils but if no national standard has been developed then no
implementation will have occurred.
Recommendation
10 was referred to Police and Attorney-General Ministerial Councils and
should have been dealt with, but I don't know the outcome.
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Recommendation
19
The
Committee recommends that the Commonwealth seeks to ensure that the Council
of Australian Governments develop a mechanism that ensures that appropriate
measures are taken by public and private land managers for the eradication of
weeds following a bushfire event.
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Government
Response
Australian
Governments will continue to implement actions under the National Weeds
Strategy (launched June 1997) to eradicate weeds, including as appropriate,
weed occurrences following a bushfire event. The National Resource Management
Ministerial Council, through the Australian Weeds Committee of the National
Resource Management Standing Committee is responsible for overseeing the
implementation of the National Weeds Strategy.
The
next Primary Industries Ministerial Council and Natural Resource Management
Ministerial Council meetings will be on 26 and 27 October 2005 respectively.
It is anticipated that any work referred to the Ministerial Councils from
COAG would go forward to the October meetings. The Australian Government will
seek to ensure that these matters are considered at these upcoming meetings.
Mr
Gary Nairn – Comment
A
commitment was given and numerous related projects have continued, but I
suspect no reporting by the states and territories on this subject has
occurred.
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Recommendation
20
The
Committee recommends that the Commonwealth work with the states and
territories through the proposed Council of Australian Governments to review
the response to bushfires to ensure that principles of fire prevention and
rapid and effective initial attack are adopted and implemented by all rural
fire authorities and public land managers.
Recommendation
25
The
Committee recommends that the Commonwealth seek to ensure that the Council of
Australian Governments seek the adoption by all states and territories of
multi-agency protocols and agreements for fire management, similar to those
in force in Tasmania.
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Government
Response
The
Australian Government supports these recommendations and acknowledges the
importance of national principles for bushfire mitigation and management
which underpin existing approaches and set a framework that jurisdictions
should work towards.
Such
principles need to emerge from a process of consultation. Draft principles
have been agreed by COAG as a starting point with further consultation and
any amendments necessary to be undertaken over the next twelve months,
overseen by the Augmented Australasian Police Ministers' Council. A report
and recommendations on endorsement of a final set of principles will then be
made to COAG.
While
ultimately the protocols and agreements adopted in any particular state or
territory for the management of bushfires are a matter for that state or
territory, the Australian Government strongly recommends the approaches
outlined in Recommendations 20 and 25 with particular reference to effective
initial attack on fires.
Mr
Gary Nairn – Comment
Recommendation
20 was strongly supported by the Commonwealth and was taken to COAG. I don't believe
it has been specifically introduced throughout rural fire services across
Australia.
Recommendation
25 was also supported by the Commonwealth, but I am not aware of any states
and territories that have done anything towards putting in place this recommendation.
Certainly Victoria hasn't, as conflict between agencies has been highlighted
at the Victorian Royal Commission.
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Recommendation
21
The
Committee recommends that the Commonwealth seeks to ensure that the proposed
Council of Australian Governments review of the bushfire management initiate
with the states, as a priority, a review of the responsibilities and
potential liabilities of fire controllers with a view to developing
principles of indemnification for reasonable, responsible and informed
decision making. This review should extend to defining responsibility for
occupational health and safety requirements in a way
which
allows practicable compliance where a reasonable degree of risk taking is
urgently required to prevent the loss of life, property and environmental
amenity from wildfire.
Recommendation
54
Further
to recommendation 21 in chapter 4, the Committee recommends that the Commonwealth
seeks to ensure that the proposed Council of Australian Governments review of
the bushfire management, initiate with the states and territories, as a
priority, a review of the duty of care of public and private landowners and
their potential liability. This should be done with a view to developing
clear and consistent principles that cover (but are not limited to) the
following:
- Timely
replacement/ repair of loss/damage (including to fences) resulting from fire
fighting operations, suppression activities or wildfires.
- The
liability of councils that imprudently approve the sale of land.
- The
responsibilities and potential liabilities of fire controllers with a view to
developing principles of indemnification for reasonable, responsible and
informed decision making (including occupational health and safety).
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Government
Response
The
Australian Government understands and supports the intentions behind these
recommendations. While it notes that the COAG National Inquiry on Bushfire
Mitigation and Management found that existing state and territory legislation
dealing with occupational health and safety is sound and that the effort
required to achieve a nationally uniform approach is not warranted, every
opportunity should be taken to ultimately achieve uniformity. The Australian
Government will ensure that such a goal remains part of any future
involvement of its Ministers. In other areas where volunteer firefighters may
be liable, the COAG Inquiry was satisfied that volunteers do not face greater
exposure than other citizens, but called on the states and territories to
maintain a process of review, to ensure that judicial interpretations are
reflected in policy and procedures and that volunteers are not disadvantaged,
particularly when they deploy interstate.
Mr
Gary Nairn – Comment
Some
work has been done in these specific areas without any move towards
uniformity across Australia.
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Recommendations
regarding the Natural Heritage Trust (NHT)[1]
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Recommendation
7
The
Committee recommends that the Commonwealth through the National Heritage
Trust assist the states and territories in the construction, maintenance and
signage of fire trail networks.
Recommendation
12
The
Committee recommends that the Commonwealth through the National Heritage
Trust, offer assistance to the states and the ACT to develop specific
prescribed burning guides, at least to the quality of Western Australia, for
national parks and state forests throughout the mainland of south eastern
Australia.
Recommendation
58
The
Committee recommends that the Commonwealth require state and territory
governments to have in place comprehensive bushfire management plans as a
pre-requisite for accessing funding from the National Heritage Trust and like
programs.
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Government
Response
Recommendation
7 has been addressed by the Prime Minister's announcement on 8 September 2004
of the establishment of a $15 million Bushfire Mitigation Fund over three
years ($5 million per annum), to contribute to the construction, maintenance
and signage of fire trail networks. The Bushfire Mitigation Fund is being
managed through the Department of Transport and Regional Services.
The
objective of the Natural Heritage Trust, as outlined in the Natural
Heritage Trust Act 1997, is to repair and replenish Australia's natural
capital infrastructure. The Trust's operations and investments focus on the
repair and enhancement of Australia's natural environment and the sustainable
management of its natural resources.
The
COAG National Inquiry on Bushfire Mitigation and Management recognises the
important role of fire management in achieving sustainable landscape
management objectives and commends the Natural Heritage Trust's support for a
wide range of projects that are improving fire management, mitigation and
recovery. Topics include: scientific knowledge of fire regimes and impacts on
biodiversity; fire management planning and practices; rehabilitation of fire
trails; bushfire recovery; threatened species recovery and habitat
restoration; and indigenous fire knowledge and practices.
The
Inquiry further notes the good progress being made in addressing appropriate
fire management practices and bushfire risk management planning through
regional natural resource management plans supported by the Natural Heritage
Trust.
Australian
and state and territory governments ensure that natural resource management
regional plans developed under the NHT are consistent with nationally agreed
strategies as they relate to the objectives of the Trust. Recommendation 14.1
of the COAG National Inquiry on Bushfire Mitigation and Management recommends
the adoption by COAG of a statement of national principles as the framework
for the future direction of bushfire mitigation and management in Australia. Following
national agreement of principles for bushfire mitigation and management, all
Governments would ensure that new regional natural resource management plans
are consistent with relevant elements of these principles.
Further,
the Natural Resource Management Ministerial Council has endorsed principles
for managing protected areas in Australia, as reflected in the Directions for
the National Reserve System – A Partnership Approach, statement of 2005.
Consistent with this statement, the states and territories have agreed to
develop management plans, including fire management plans, within 3 years. In
addition, finding 6.12 of the COAG National Inquiry on Bushfire Mitigation
and Management stated that 'Natural resource management regional plans
developed under the Natural Heritage Trust should take bushfire management
into account and be consistent with the bushfire risk management process.'
All governments acknowledged this finding.
A
further opportunity to encourage appropriate consideration of fire management
needs in natural resource management planning will arise in the development
of natural resource management funding arrangements to operate after
conclusion of the current arrangements in June 2008.
Mr
Gary Nairn – Comment
Recommendation
7 was implemented in 2004 with funding for 3 years. I'm unaware whether it
has continued under the current administration. It is very difficult for
predominantly local councils to continue this work without assistance from
the states and Commonwealth.
In
relation to Recommendation 12, some work was done via the NHT, but in my view
none have been completed to WA's standard.
Recommendation
58 was never adequately implemented and NHT programs finished in 2008.
Programs such as Caring for our Country should now be examined in this
regard.
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Recommendations
regarding spatial information
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Recommendation
31
The
Committee recommends that Geoscience Australia take responsibility, in
conjunction with Emergency Management Australia, for developing a national
spatial data policy to coordinate the development of data systems, the
collection of data and the sharing of data between all the emergency response
agencies across Australia, and that both agencies participate in the
development and delivery of spatial information systems as part of a national
approach to emergency planning and management data. The first priority in
policy development and of systems should be related to bushfire hazards.
Recommendation
32
The
Committee recommends that Emergency Management Australia be required to
participate in the development and delivery of spatial information systems as
part of a national approach to emergency planning and management data. The
first priority in policy development and of systems should be related to
bushfire hazards.
Recommendation
33
The
Committee recommends that the 1:100,000 national mapping program be accelerated
to achieve an average life of no greater than 10 years with priority given to
those areas most susceptible to national disasters.
|
Government
Response
The
Australian Government agrees that national consistency in datasets is
essential for addressing an all-hazards approach to risk management,
including bushfire risk.
A
wide range of data needs to be captured in order to full rationalise the
entire emergency management process. This includes post-disaster data
relating to the impact and recovery from present-day or historical events, as
well as basic exposure and vulnerability data to assess the potential impact
of future events. This work needs to be coordinated with the activities
identified and discussed under Recommendations 1, 3, 5, 8 and 14.
The
Australian Government will continue to develop national consistency in
national datasets relevant to bushfire mitigation and management under the
Australian Spatial Data Infrastructure framework.
Mapping
priorities will be developed in close collaboration with the national
database needs addressed in Recommendations 1, 3, 5, 8 and 14. The Minister
for Industry, Tourism and Resources will be requested to take Recommendation
33 into account when preparing forward budgeting.
Mr
Gary Nairn – Comment
In
some respects Recommendation 31 is being carried out through the Office of
Spatial Data Management (OSDM) within Geoscience Australia. However, it does
not have the funding to effectively fully implement the recommendation and
therefore the optimum situation for national spatial information is some way
off.
Recommendation
32 –These matters are still being addressed within the states and territories
without any national approach.
Recommendation
33 – Some work has been done but the 10 year goal has not yet been achieved.
|
Recommendation
23
The
Committee recommends that the Commonwealth, through the Council of Australian
Governments and the Australasian Fire Authorities Council, initiate an
overhaul of the incident management systems used by bushfire agencies in
Australia to better incorporate local knowledge and expertise and better
understanding of the needs and circumstances of local rural communities in
the management of major fire events.
The
Committee also recommends that this overhaul should aim to:
- refine
the system to facilitate setting up simple command and control structures,
closer to the fire ground, in tune with the ever changing local fire ground
conditions and needs of local communities;
-
include
training of incident management personnel on how to engage and involve local
people in planning and management of fires;
- establish
national models for community fire planning and provide for the integration
of community fire plans into incident management; and
- include
national reporting of the success of incident management of fires as a means
of auditing the cost effectiveness or incident operations.
Recommendation
24
The
Committee recommends that the state and territory bushfire agencies ensure
that, on a district basis, communications are addressed within the district
operations plans and that the plans are capable of easy adoption to incident
action plans.
Recommendation
30
The
Committee recommends that in changing the incident management systems as
proposed in recommendation 23 above all bushfire agencies review concerns
about difficulties in communicating operational information from the fire
front to air operations.
Recommendation
37
The
Committee recommends that Emergency Management Australia work through the
Australasian Fire Authorities Council to ensure that:
- A
greater emphasis be placed on pre-incident and incident preparation of
communication plans as a means of ensuring effective interoperability between
agencies at command and tactical levels.
- That
the speed of transfer of operational information between agencies at command
level be regularly monitored to ensure that operational objectives are not
being compromised.
|
Government
Response
The
Australian Government strongly supports the adoption of a nationally agreed
Australian Inter-service Incident Management System (AIIMS) Incident Control
System, while recognising operational issues such as the incident management
systems used by bushfire authorities in Australia are matters for the states
and territories.
The
Australasian Fire Authorities Council is currently working with member
agencies towards the development of a national system for multi-agency
incident coordination, using the (AIIMS) Incident Control System as the basic
building block. All fire services have agreed to the national adoption of the
recently reviewed AIIMS and also all state emergency services have confirmed,
through the Australian Council of State Emergency Services, that they will
adopt the AIIMS on a phased state by state basis. Recommendations 23 and 30
will be addressed as part of that process.
The
Australian Government understands that the Australasian Fire Authorities
Council has recognised the need for standard operating procedures for
aircraft operations (Recommendation 30).
The
AIIMS Incident Control System potentially allows for the identification and
integration of local knowledge during fire fighting operations. Increased use
of local knowledge would be more related to training in the value of this
information and organisational cultural changes in accepting the value of
loca knowledge than occurs in the currently documented process. While this is
primarily a state and territory issue, the Australian Government strongly
endorses this report's emphasis on the need for utilisation of local
knowledge and encourages all jurisdictions to adopt this approach.
The
COAG National Inquiry on Bushfire Mitigation and Management has also
recognised this issue in Recommendation 8.2 relating to further development
of the AIIMS system.
Mr
Gary Nairn – Comment
Recommendation
23 – I understand that the Australasian Fire Authorities Council did address
this recommendation but I am unaware how far it has been taken.
Recommendation
24 – I'm uncertain as to implementation of this recommendation.
Recommendation
30 – I understand technology developments have assisted substantially in
improving these communications.
Recommendation
37 – Some work has been done in this area through the Australian
Inter-service Management System (AIIMS) but I understand full
interoperability has still not been achieved.
|
Recommendations
regarding communications
|
Recommendation
34
The
Committee recommends that Emergency Management Australia and the Australian
Communications Authority jointly with the Australasian Fire Authorities
Council:
- Initiate
an urgent review on a district basis, of the suitability of the current
allocated radio spectrum to ensure that as far as possible, fire fighter
safety is not being compromised through inadequate communications.
- Commit
to the development, in conjunction with representative bodies of all
emergency services, to a National Strategic Radio System.
- That
the coordination of the deliberations be assigned to Emergency Management
Australia.
Recommendation
41
The
Committee recommends that Emergency Management Australia request the
Australasian Fire Authorities Council to:
- Determine
protocols and standards on a national basis for the adoption and
implementation of mobile data services by all fire fighting agencies with a
view to ensuring national compatibility.
- Consider
the development of a ‘closed user group’, utilising satellite telephony, as
an interim measure for achieving interoperability between member agencies on
a national level.
|
Government
Response
The
Australian Government agrees in principle to these recommendations, in
particular the objective of developing a National Strategic Radio System, and
the issues raised will be directed to the National Coordinating Committee for
Government Radiocommunications (NCCGR), which is tasked with developing and
maintaining a national strategic plan for Government radiocommunications. The
NCCGR consists of representatives of the Australian Government and all state
and territory governments.
The
Australian Government, through the Australian Communications and Media
Authority's participation in the NCCGR, gives effect to its acceptance in
2002 of Recommendation 6a of the 'Radiocommunications Review Report', that
the Australian Communications and Media Authority provide technical
assistance if state and territory emergency and police services seek to
cooperate in establishing a national emergency services network.
Mr
Gary Nairn – Comment
Recommendation
34 – While problems still occurred in this area during the Victorian bush
fires, technology has progressed substantially since the 2003 Inquiry,
therefore the Senate should investigate current technology opportunities to
solve these problems.
Recommendation
41 – I recall that this was taken up by AFAC shortly following the release of
my report (as reported to me by the Chair of AFAC), however, I don't believe
national compatibility has been achieved. In fact I don't believe there can
be full compatibility until the development of a national Spatial Data
Infrastructure (SDI), which is much needed 'smart infrastructure' not yet
recognised by organisations such as Infrastructure Australia.
|
Recommendation
35
The
Committee recommends that:
- As
a short term objective, the use of ‘40’ channel UHF CB equipment be adopted
for coordination and interoperability of communications at fire ground level.
- As
a longer term objective a national communications plan be developed and
incorporate the provision of low powered VHF channel allocations for the
purpose of ensuring compatible fire ground communications between all agencies
on a national basis.
- That
the use of UHF CB between units on the fire ground be included in
communications planning for intra-state and interstate deployments.
|
Government
Response
With
regard to the Citizen Band Radio Stations (CB) elements of this
recommendation, the Australian Communications and Media Authority has advised
that UHF CB radio is an open informal uncoordinated low-cost
radiocommunications application that can be used by anyone in Australia.
While anyone can use the Class Licensed CB radio spectrum, there are no
provisions to reserve any particular channel for emergency service use. That
lack of coordination and control might make CB unsuitable for emergency or
safety communication purposes. There is the possibility that other users may
not respond to emergency calls for assistance or not behave in a responsible
manner at critical times (anti-social behaviour is know to occur among some
users of CB radio equipment).
The
Australian Communications and Media Authority has allocated specific channels
in the UHF band (450 to 470 MHz) for exclusive use by police and emergency
services. The Government is working with the NCCGR regarding access to, and
use of, these channels for inter-operable communications between agencies in
times of national emergencies and natural disasters.
The
remaining element of this recommendation relating to VHF communications and
objectives of a national communications plan will be referred to the NCCGR.
Mr
Gary Nairn – Comment
While
problems still occurred in this area during the Victorian bush fires,
technology has progressed substantially since the 2003 Inquiry, therefore the
Senate should investigate current technology opportunities to solve these
problems.
|
Recommendation
36
The
Committee recommends that Emergency Management Australia and the Australian
Communications Authority work with state and territory bush fire authorities
to ensure that that district communication plans have regard for the amount
of radio traffic that may be generated under the most severe conditions.
Recommendation
38
The
Committee recommends that Emergency Management Australia and the Australian
Communications Authority, in conjunction with the respective state and
territory governments, ensure the survivability of essential communication
installations during fire incidents by strategic fuel management around the
assets.
|
Government
Response
The
Australian Government acknowledges the importance of good communications
plans when severe events such as bushfires occur. Therefore, state and
territory emergency service organisations which have responsibility in this
ara must adequately managed their dedicated networks on the ground during and
incident to avoid congestion.
Although
the issues raised in Recommendation 36 are a state and territory
responsibility, they should be considered by the NCCGR. Through the
Protective Security Coordination Centre as the Australian Government member
of the NCCGR, Emergency Management Australia, as an observer to the National
Coordinating Committee, will pursue the objectives of Recommendation 36.
While
generally the issues raised in Recommendation 38 are a state and territory
responsibility, the Department of Communications IT and the Arts and
Emergency Management Australia will bring this matter to the attention of the
National Committee for Critical Infrastructure Protection, where
consideration will be given as to whether the matter needs to be passed to
the Communications Sector Infrastructure Assurance Advisory Group for advice
on the current plans of telecommunication providers to protect their
installations during fire incidents. It should be noted that communications
issues were also addressed in the COAG directed National Bushfire Inquiry.
Mr
Gary Nairn – Comment
Recommendation
36 – This is also a matter that should be assessed in the light of new
technology.
Recommendation
38 – This recommendation was referred to the National Committee for Critical
Infrastructure Protection and subsequently highlighted to state and territory
authorities.
|
Recommendation
39
The
Committee recommends that the Commonwealth investigate, and where necessary,
require the urgent enhancement of the provision of emergency power and
telecommunications services for the purpose of restoring essential services
expeditiously in areas affected by fire or other natural disaster and where
necessary to place licence requirements on telecommunication providers to do
so.
|
Government
Response
The
Australian Government recognises that public networks are already designed
for business continuity with redundancy and a high degree of resiliency.
Providers have a capacity (although this is clearly dependent on the incident
and level of damage etc.) to respond to provide extra communications
capacity.
The
Australian Government does not support the proposal to require power and
telecommunications providers (as part of licence conditions) to enhance
existing backup power and relecommunications systems across their entire
networks as this would place very significant cost burdens on providers and,
consequently, consumers. For example, costs may be incurred due to provision
of additional facilities in the case of telecommunications. However, further
improvements to bushfire mitigation and management practices and procedures
are being pursued by all jurisdictions, through the responses to the COAG
Natural Disasters in Australia report and the COAG National Inquiry on
Bushfire Mitigation and Management.
Mr
Gary Nairn – Comment
As
the placing of licence conditions was not supported by the Commonwealth there
was no action taken on the second part of this recommendation. I'm unaware of
any other actions with respect to the first part.
|
Recommendation
40
The
Committee recommends that, for the purpose of communications for the police,
ambulance and fire brigades, any rental costs associated with the use of
radio sites under the care, control or management of the Commonwealth, state,
territory or local government be waived, other than for the ongoing cost
associated with the use of power at the site.
|
Government
Response
The
Australian Communications and Media Authority provides radiocommunications
licence fee concessions and exemptions for certain emergency and
safeguarding-of-life bodies where those bodies are staffed principally by
volunteers and meet other specified criteria. While the decision to waive
costs for any user of a radio site is a commercial decision for the owner of
that site, the Australian Government, at the earliest opportunity, will
discuss this issue with relevant parties, including through the NCCGR. The
Australian Government encourages site owners to favourably consider requests
by emergency service clients to waive some costs during times of emergency,
in recognition of the public good provided to the community by such groups.
Mr
Gary Nairn – Comment
As
many operators could be involved with this recommendation it is difficult to
know to what extent it has been addressed.
|
Recommendations
regarding volunteers
|
Recommendation
27
The
Committee recommends that:
- the
Commonwealth implement a program similar to the Army Reservist Employer
Support Program for the re-imbursement of costs incurred by employers of
volunteer fire fighters when attending bush fires for a period exceeding five
days in any month; and
- the
Commonwealth consult with the states and territories through Council of
Australian Governments to develop a range of measures related to local
government rates, state government charges and insurance costs to provide
rebates for registered volunteer fire fighters.
- the
Commonwealth consider the feasibility of taxation relief on costs incurred by
registered fire fighting volunteers in the line of duty.
Recommendation
28
The
Committee recommends that the Commonwealth Government work with the Australasian
Fire Authorities Council to review the insurance cover provided to volunteer
fire fighters in all states and territories and ensure that cover is adequate
for loss of life or injury and related loss of income and property lost in
the line of duty.
|
Government
Response
The
Australian Government acknowledges the vital and significant contribution
emergency services volunteers make to the safety and well-being of Australian
society. Recognition is an important part of volunteering but the Australian
Government recognises that proposals that seek to provide financial
recognition for volunteers may not always be consistent with the volunteer
ethos.
The
Australian Government does not endorse the proposal for payment to the
employers of emergency services volunteers similar to the Army Reservist
Employer Support Program, due to the difficulties in implementing such a
scheme and the potential inequities. The Australian Government notes that
this position is consistent with the view expressed in the report of the COAG
National Inquiry on Bushfire Mitigation and Management.
It
is worth noting that the Australian Government already provides generous tax
concessions to emergency services organisations. Emergency services or search
and rescue teams consisting of volunteers and voluntary organisations such as
bush fire brigades, which have as their central purpose the provision of
direct relief to disadvantaged people, may qualify as Public Benevolent
Institutions (PBIs). This will be the case there they are not arms of
government and subject to government control. As PBIs, emergency services
organisations are entitled to a number of tax concessions, such as income tax
exemption, fringe benefit tax exemption and deductible gift recipient status.
In
recognition of the valuable work of government emergency service coordination
bodies, the Australian Government has introduced legislation to extend
deductible gift recipient support to the coordinating bodies for fire and
emergency services in each state and territory. If an organisation is a deductible
gift recipient, donors are able to claim a tax deduction for most gifts made
to the organisation provided that certain conditions are met.
The
Australian Government acknowledges the need for greater non-monetary
recognition of volunteers but does not support the proposal for tax
concessions for individuals.
It
is noted that the Australian Government has announced funding of $16 million
over four years to establish a National Emergency Volunteer Support Fund.
This fund will boost the recruitment, skills and training base of volunteer
organizations at the front line of emergency management. Â Arrangements for
the establishment of this Fund are well advanced, and the development of
those arrangements has involved active consultation with states and territories
and other stakeholders, including the Australasian Fire Authorities Council.
Tax
Concession Proposal
While
acknowledging the important work undertaken by emergency services volunteers,
the Australian Government does not consider it appropriate for it to provide
financial assistance in recognition of their out-of-pocket expenses. Also, as
previously stated to the COAG National Inquiry on Bushfire Mitigation and
Management, the Australian Government does not consider that tax concessions
are the appropriate mechanism for providing this assistance.
The
Australian Government notes that volunteer emergency services organisations
are primarily funded by state and territory governments and, depending on the
management of the individual organisation, volunteers may already be
compensated for their out-of-pocket expenses. The Australian Government does
not support an additional Commonwealth outlays program that would ensure
direct reimbursement, as such a program would go against the principle of
volunteering; that is, the contribution to the community is the motivation
and reward for participating in the activity. This was acknowledged in
submissions made to the House of Representatives Select Committee by various
volunteer fire brigades including Volunteer Fire Brigades Victoria.
The
Australian Government notes that tax deductions are generally considered to
be inferior to outlays measures in encouraging behavioural change, as the
degree of benefit an individual received from a tax deduction is dependent on
the marginal tax rate they face and therefore their income. Similarly, tax
rebates can generally only benefit people who pay tax. Any volunteers who do
not pay tax would generally not be able to access a benefit provided in this
form. Also, an income tax concession would impose a cost on the Australian
Government for what is primarily a state and territory government matter.
The
Australian Government considers that if income tax concessions were available
to emergency services volunteers only, it is likely that there would be
pressure to extend them to other volunteer groups. The proposal may generate
a significant cost to revenue. Further, the Australian Government notes that
such a proposal may have considerable impact on the Australian Taxation Office's
administration of allowable deductible expenses and add greater complexity to
the tax system.
The
Australian Government notes that issues concerning volunteers raised by the
report Natural Disasters in Australia: Reforming Mitigation, Relief and Recovery
Arrangements, endorsed in principle by COAG (Recommendation 58) will be
taken forward by the Australian Emergency Management Committee.
In
particular, in relation to Recommendation 28 of the Nairn Inquiry regarding
insurance cover to volunteer fire fighters, Recommendation 58 (c) of the Natural
Disasters in Australia: Reforming Mitigation, Relief and Recovery Arrangements
Report asks, inter alia, that state and territory governments:
-
review
and compare the legal protections provided in their legislation to determine
whether it offers adequate cover for both volunteers and their organisations;
and
- consider
providing assistance with the provision of public liability insurance for
emergency management volunteer organisations.
Mr
Gary Nairn –Comment
Recommendation
27 – This recommendation has not been acted upon.
Recommendation
28 – I'm not aware of any changes that may have occurred.
|
Recommendations
regarding insurance and charges
|
Recommendation
42
The
Committee strongly recommends that the New South Wales, Victorian and
Tasmanian Governments abolish the Fire Levy tax they impose on home and
business insurance premiums (wherever applicable), making it payable through
household rates instead.
Any
cost savings gained by the insurance industry through relief from collecting
Fire Levies should be passed on to policyholders through reduced premiums. At
the same time the Committee urges the Insurance Council of Australia to run
ongoing education campaigns to increase public awareness on bushfire preparedness,
including the need for insurance.
Recommendation
44
The
Committee suggests that registered volunteer fire fighters be exempt from
paying Fire Levy tax to help offset some of the expense they incur during
active duty. The exemption could be for a period of 12 months following each
bushfire season in which they are proven to have fought fires.
|
Government
Response
Fire
Levy taxes are levied by state and territory governments. In relation to
Recommendation 44, the Australian Government considers it appropriate that
state and territory governments consider providing exemptions for emergency
services volunteers.
In
regard to Recommendation 42, the Australian Government agrees that state and
territory governments should reduce or eliminate inefficient and inequitable
taxes. The Australian Government Treasurer wrote to the state and territory
Treasurers on 11 September 2003 in regard to the HIH Royal Commission
recommendation that state and territories abolish fire services levies on
insurers.
Mr
Gary Nairn – Comment
While
Recommendation 42 was supported by the Commonwealth and steps were taken to
encourage states and territories to do so I am note sure where there has been
universal change. However, I am aware that in some locations, fire levies on
insurance policies have been replaced by an Emergencies Levy as part of rates
(eg. Snowy River Shire Council).
Recommendation
44 – I'm not aware whether any Local Government Councils have taken this
step.
|
Recommendation
43
The
Committee recommends that taxes on insurance premiums be calculated only on
the premium in order to eliminate the current cascading cost.
|
Government
Response
While
this issue is the responsibility of the state and territory governments, the
Australian Government supports the recommendation and strongly encourages
state and territory governments to change their current policies. The GST has
provided the states and territories with increased revenues and they should
not be resorting to "tax on tax" methodologies to further increase
revenues.
General
insurance polices such as household and fire insurance are subject to GST in
the same manner as other goods and services. Under the A New Tax System
(Goods and Services Tax) Act 1999, GST does not apply to taxes that
states and territories charge on insurance policies.
However,
the level of state taxes and the calculation of these taxes is determined by
the states and territories. It is a matter for individual states and
territories to decide whether their taxes are levied on a GST inclusive or
exclusive price of the premium.
Mr
Gary Nairn – Comment
I
believe some changes have been done in some states but not universally.
|
Recommendation
45
The
Committee recommends that the Insurance Council of Australia coordinates a
public education campaign aimed at illustrating the importance of asset
protection and how this can be achieved (that is, insurance products).
Recommendation
46
The
Committee recommends that insurance companies ensure that potential and
existing policyholders are aware of the need to regularly review their
insurance policies to prevent undervaluing. This could be done through
renewal notices and quarterly reminders. This should include a list of
bushfire risk reduction measures that policyholders can implement to decrease
the cost of their premium.
|
Government
Response
The
Australian Government supports attempts to ensure that the insurance industry
takes account of lessons learnt regarding the level of under-insurance and
the treatment of policy holders during the recent bushfires.
The
Insurance Council of Australia is currently reviewing its Code of Practice.
The Minister for Revenue and Assistant Treasurer will write to the Council
drawing its attention to these recommendations.
Mr
Gary Nairn – Comment
Recommendation
45Â – The insurance industry has certainly increased its understanding of
bushfire risks following the 2003 bushfire Inquiries but the Senate Committee
will need to ascertain from the Insurance Council of Australia as to its
specific involvement in public education campaigns that have occurred.
Recommendation
46 – All major insurance companies have taken a number of steps in this
regard and are gradually utilising technology such as Geographic Information
Systems (GIS) to better analyse bushfire risks when determining policy premiums.
|
Recommendations
regarding building construction
|
Recommendation
47
The
Committee recommends that Standards Australia incorporate building
maintenance into AS3959–1999: Construction of Buildings in Bushfire Prone
Areas, perhaps renaming it as AS3959–1999: Construction and Maintenance of Buildings
in Bushfire Prone Areas.
Recommendation
49
The
Committee recommends that Standards Australia review the clarity of
AS3959–1999: Construction of buildings in Bushfire Prone Areas to ensure that
all relevant stakeholders can interpret and apply the Standard in the way it
is intended.
Recommendation
50
The
Committee recommends that Program D of the Commonwealth Bushfire Cooperative
Research Centre examines the (pending) outcome of the ABCB’s review of the
existing Building Code of Australia bushfire provisions (including Standard
AS3959–1999) to determine their adequacy and the ways in which compliance can
be better managed. This should include extending its scope to cover existing
buildings and those that are not in areas declared as bushfire prone, yet
still on the urban-rural interface and therefore, potentially at risk.
|
Government
Response
The
Australian Government supports these recommendations and considers that the
Australian Building Codes Board should place priority on its current review
of the Building Code of Australia provisions and Standard AS 3959.
The
Australian Building Codes Board, in conjunction with Standards Australia and
with advice from the Bureau of Meteorology, is currently reviewing the
existing Building Code of Australia provisions and Standard AS 3959 to ensure
they are practical, effective, reflect good regulatory principles and
informed by the latest scientific knowledge. The Australian Building Codes
Board is a core participant of the Bushfire CRC and will direct research
within the Bushfire CRC to aid the development of the provisions for
construction in bushfire-prone areas.
The
Minister for Industry, Tourism and Resources will write to the Australian
Building Codes Board, identifying the review as a priority and reinforcing
both the urgency for, and benefits of, encouraging Standards Australia to
complete the revision of the Australian Standard that follows the COAG Principles
and Guidelines for National Standard Setting and Regulatory Action by
Ministerial Councils and Standard-Setting Bodies and its enactment
through the Building Code of Australia. In his letter the Minister will as
the Board to resolve as soon as possible any other outstanding issues
relating to the building code and natural hazards including bushfires and he
will refer the Board to Recommendations 47, 49 and 50 of the report.
Mr
Gary Nairn – Comment
Recommendations
47 and 49 – I'm aware that the Australian Building Codes Board issued a Regulatory
Impact Assessment in 2009 for a proposed amendment to AS 3959-1999, however,
I don't believe the amendment has been finally put in place.
Recommendation
50 – I understand work in this area has been done by the Bushfire CRC but the
current status is unknown to me.
|
Recommendation
48
The
Committee recommends that state and territory governments be required to
regularly perform risk assessments to the land within their jurisdictions to
ensure that bushfire prone areas are accurately identified and can be
appropriately managed. This should include possibly prohibiting, or at least
limiting, reticulated development in these areas. If building is effectively
prohibited on land previously zoned for residential or commercial building,
state and territory governments, in conjunction with local councils, should
adequately compensate the affected landholders.
|
Government
Response
The
Australian Government supports this recommendation and encourages the states
and territories to continue improving bushfire risk assessment through the
implementation of the reform commitments and recommendations in the COAG
report Natural Disasters in Australia: Reforming Mitigation, Relief and Recovery
Arrangements. In particular, Reform Commitment 4 states that governments
should:
take action to
ensure more effective statutory State, Territory and Local Government land
use planning, development and building control regimes that systematically
identify natural hazards and include measures to reduce the risk of damage
from these natural hazards.
Reform
Commitment 4 and Recommendations 12, 13, 14 and 15 of the COAG Natural Disasters
in Australia: Reforming Mitigation, Relief and Recovery Arrangements Report
are currently being addressed through the Local Government and Planning
Ministers' Council. The Australian Government is also providing training in
risk based land use planning through Emergency Management Australia.
Mr
Gary Nairn – Comment
While
states and territories will claim they comply with the first part of Recommendation
47, scrutiny will reveal they fall short of a comprehensive assessment. As
the same constitutional requirement for compensation on just terms that applies
to the Commonwealth does not apply to the states and territories I doubt
there is an example of the second part being implemented.
|
Recommendations
regarding miscellaneous actions
|
Recommendation
22
The
Committee recommends that the Commonwealth Attorney-General engage the
Commonwealth, states and territories in a review of occupational health and
safety legislation as it affects the proper and effective functioning of bush
fire services.
|
Government
Response
The
Australian Government agrees that the occupational health and safety concerns
of volunteers are important issues.
As
noted under Recommendation 54, the Australian government notes that Finding
12.2 of the COAG National Inquiry on Bushfire Mitigation and Management found
that existing state and territory legislation dealing with occupational
health and safety is sound and that the effort required to achieve a
nationally uniform approach is not warranted. Ongoing review of the issue was
proposed.
Occupational
health and safety issues concerning volunteers were also raised in
Recommendation 58 of the COAG Report: Â Natural Disasters in Australia:
Reforming Mitigation, Relief and Recovery Arrangements and will be
addressed by the reconstituted Australian Emergency Management Committee,
chaired by the Attorney-General's Department.
During
the 2004 election, the Australian Government announced a commitment of $16
million over four years to establish a National Emergency Volunteer Support
Fund. This fund will boost the recruitment, skills and training base of
volunteer organisations at the front line of emergency management.
Arrangements for the establishment of this Fund are well advanced, as noted
earlier.
Matters
raised in this recommendation will be included as an agenda item at the next
meeting of the Australian Emergency Management Committee, with particular
reference to the state and territory review processes.
Mr
Gary Nairn – Comment
This
is ongoing with the states and territories which have responsibility. They
would need to be approached as to the current situation.
|
Recommendation
26
The
Committee recommends that Emergency Management Australia initiate a process
involving Australasian Fire Authorities Council and the Australian Assembly
of Volunteer Fire Brigades Association to review the coordination of cross
border fire fighting arrangements and interstate deployment of fire fighting
resources. The review should specifically consider training on the full range
of equipment and procedures likely to be encountered, standardisation of
equipment and procedures, communication and the provision of information
about local characteristics such as access to water.
|
Government
Response
The
Australian Government supports the improvement in cross-jurisdiction
arrangements and improvements in inter-operability and standardisation of
equipment. It is noted that through the Australian Emergency Management Committee
process there has been the development of a paper Guidelines for the
Provision of Support Between States. While issues related to
standardisation remain the responsibility of the states and territories,
Emergency Management Australia will work with the Australasian Fire
Authorities Council through the Emergency Management Committee to overcome
any inconsistencies.
The
Australian Government, through the Australian National Training Authority,
has played a role in identifying standards for mitigation against fire and
emergencies. These standards have been nationally agreed after extensive
consultation with stakeholders and are being used for training purposes. The
standards allow for training in specific pieces of equipment and differing
circumstances and cover management as well as operational skills. The
standards also allow for local legislative and regulatory requirements as
well as being able to be used for training on equipment used locally.
Procedures are documented in training support material developed to support
implementation of the standards. However the standards do not and cannot
accommodate or prescribe the use of standardised equipment where this has not
been agreed nationally.
Mr
Gary Nairn – Comment
Some
work has been done between jurisdictions with respect to cross border
assistance but there is still no national standard on equipment and other
matters.
|
Recommendation
29
The
Committee recommends that the Commonwealth should commit funding for aerial
fire fighting beyond the 2003–04 season on the proviso that the Australasian
Fire Authorities Council and the state and territory governments make a
commitment to:
- Rapid
initial attack of all wildfires during the bush fire season regardless of
tenure.
-
Deployment
on long term contracts of a mix of aircraft, including fixed wing.
-
Deployment
of aircraft on a nationally coordinated risk analysis basis to be updated as
each fire season unfolds.
- Provision
of nationally coordinated full ground support.
- Development
of training arrangements for air crews, ground support crews, incident
management teams and fire fighters to a national standard.
- Development
of systems of effective aerial control of fire bombing operations.
|
Government
Response
The
Australian Government believes that the investment in aerial firefighting
must be utilised effectively. This includes the use of appropriate aircraft
at the appropriate time during a fire event. The Australian Government has
already announced further funding for the National Aerial Fire Fighting
Centre of $5.5 million per annum for the three years 2004-05 to 2006-07. The
Department of Transport and Regional Services will require detailed acquittal
of the Australian Government's contribution to aerial firefighting resources
to ensure the most effective use of aircraft.
The
decision to attack fires using aerial firefighting equipment is solely that
of the jurisdiction with "ownership" of the fire. The National
Aerial Firefighting Centre has no role in making this type of decision,
although the new "national" arrangements allow for a more flexible
movement of resources between jurisdictions in response to their requests.
The
mix aircraft in the national pool is determined by the needs of states and
territories taking account their individual firefighting requirements and
budgetary constraints. This process is centrally coordinated by the National
Aerial Firefighting Centre to enable the best mix of aircraft using economies
of scale within budget constraints.
Deployment
of aircraft is decided by states and territories in conjunction with the
National Aerial Firefighting Centre prior to each season, taking into account
their perceived and immediate fire risk. This is reviewed annually prior to
each fire season with the needs of each state and territory being taken into
account by National Aerial FireFighting Centre as part of its planning
process.
Ground
support for each aircraft is a requirement of the current "wet"
lease arrangements, ie. a service is leased not jus the aircraft.
It
is understood that training arrangements are in place as part of Australasian
Fire Authorities Council training Resource Kit for aviation. This is based on
the National Public Safety Training Package as part of the national competency
framework.
Systems
for aerial control of fire bombing operations have been in place for some
time as part of the suite of tools for firefighting. In addition, the
Bushfire CRC will be undertaking research evaluating effectiveness of
aircraft and the results of that research will be considered by the
Australasian Fire Authorities Council.
Mr
Gary Nairn – Comment
Further
funding from the Commonwealth was forthcoming, covering up to and including
2006-07, however there were no provisos along the lines of the
recommendation.
|
Recommendation
52
The
Committee recommends that the Australasian Fire Authorities Council’s
suggested evacuation protocol be adopted by all of the Australian states and
territories.
|
Government
Response
The
Australian Government notes the importance of clear advice for residents
during a bushfire and supports this recommendation. It is important that the
message of "go early or stay and defend" is communicated carefully
because in relation to other disasters it may not be appropriate to allow a
resident to stay.
The
Bushfire CRC is examining these issues within the broad context of Program C
of its research which looks at the social impact and elements of preparedness
of communities at risk. The Bushfire CRC's research outcomes will help inform
the development of policy in this area.
Recommendation
8.7 of the COAG National Inquiry on Bushfire Mitigation and Management also
addresses the issue of a "go early or stay and defend" policy.
COAG
has asked the Augmented Australasian Police Ministers' Council and the
Australian Emergency Management Committee to consider the implementation of a
nationally consistent approach and provide guidance to jurisdictions on
issues related to community information, training, warnings and evacuations
for disaster situations.
Mr
Gary Nairn – Comment
The
debate on this issue that followed the Victorian bushfires is indication
enough of how little notice was taken of this report by the states and
territories following its release in 2003.
|
Recommendation
55
The
Committee recommends that the functions and administration of Emergency
Management Australia be reviewed to develop an organisation that is proactive
and involved in the development and implementation of national policy on
emergency response.
|
Government
Response
The
Department of Transport and Regional Services is the Australian Government
agency with principal responsibility for natural disaster policy matters,
including natural disaster relief and mitigation in the form of financial
assistance to the states and territories; the Attorney-General's Department
(including Emergency Management Australia) is responsible for Australian
Government emergency management.
The
endorsement in principle of the High Level Group Report Reforming Mitigation,
Relief and Recovery Arrangements has involved Emergency Management
Australia heavily in the establishment of, and support for, the high level
governance of emergency management in Australia. This will involve Emergency
Management Australia at all levels of National policy development, where
appropriate. Further, Emergency Management Australia is a member of the
National Counter Terrorism Committee and the Australian Government Counter
Terrorism Policy Committee, thereby involving Emergency Management Australia
in the development of national security related policy, Through these means,
Emergency Management Australia is involved pro-actively in the integration of
crisis and consequence management, in an all hazard context. Evidence of this
was recently tested by Emergency Management Australia brining consequence
management issues to the fore during Tsunami Assist.
The
current arrangements are supported in finding 8.1 of the COAG National
Inquiry on Bushfire Mitigation and Management which states that "The current
all-hazards control and coordination arrangements at the national and state
and territory levels are adequate for the operational management of bushfires
in Australia".
Mr
Gary Nairn – Comment
While
this recommendation was not implemented as such, the government at the time
believed EMA was actively involved through its home department in these
matters.
|
Recommendation
56
The
Committee recommends in acknowledgement of the expertise that the
Commonwealth can bring to the Australasian Fire Authorities Council and of
funding already supplied to the Council for the development of a National
Aerial Firefighting Strategy, that the current status of Emergency Management
Australia on AFAC as an associate member be upgraded to full membership and
that full membership also be extended to the Department of Defence.
|
Government
Response
Emergency
Management Australia became a full member of the Australasian Fire
Authorities Council in October 2003 and represents the Australian Government
on the Council. The Department of Defence is a member of three Australasian
Fire Authorities Council committees.
Mr
Gary Nairn – Comment
EMA
is now a full member and the Department of Defence is a member of AFAC
committees.
|
Recommendation
57
The
Committee recommends that the Department of Transport and Regional Services
review its record keeping practices to show the type of emergency for which
assistance is provided through the Natural Disaster Relief Arrangements.
|
Government
Response
The
Department of Transport and Regional Services is currently reviewing the
Natural Disaster Relief Arrangements in light of recommendations related to
the arrangements made in the COAG Report: Natural Disasters in Australia:
Reforming Mitigation, Relief and Recovery Arrangements, accepted by all
Australian Governments in December 2003. The Committee's recommendations will
be given particular consideration as part of that review.
Mr
Gary Nairn – Comment
This
was done, but it would be useful to know how this is now handled following
departmental structural changes in recent years.
|
Council of Australian Governments
National Inquiry into Bushfire Mitigation and Management (2004)
|
Recommendation
3.1
Learning
how to live with fire
The
Inquiry recommends that state and territory governments and the Australian
Government jointly develop and implement national and regionally relevant
education programs about bushfire, to be delivered to all Australian children
as a basic life skill.
These
programs should emphasise individual and household preparedness and survival
as well as the role of fire in the Australian landscape.
Program
effectiveness should be audited by each state and territory after five years,
with a national report to be provided to the Council of Australian
Governments.
|
COAG
Response
COAG
supports Recommendation 3.1 which is aimed at integrating bushfire education
into school education. Jurisdictions provided examples to the Inquiry to show
that much work has already been done both in schools and within the
community. COAG considers it important that attention be given to how
bushfire education can be properly integrated into the school curriculum,
although conscious of the range of competing pressures. Due regard also needs
to be paid to the development of high quality resource materials and other
support for teachers. COAG will request that the Augmented Australasian Police
Ministers' Council and the Ministerial Council on Employment, Education,
Training and Youth Affairs, with reference to the National Resource
Management Ministerial Council, consider the implementation of the
recommendation and report back to COAG within 12 months.
Community
bushfire education outside schools is significant but more difficult to
formalise. COAG will request that the Augmented Australasian Police
Ministers' Council collect and share information on best practice in
community bushfire education across jurisdictions in order to assist
jurisdictions to adopt appropriate measures, having regard to particular risk
factors and local conditions.
|
Recommendation
4.1
The
risk management process
The
Inquiry recommends that a structured risk-management process based on the
Australian Standard for Risk Management be further developed and applied in
all aspects of bushfire mitigation and management, informed by a thorough
understanding of the full range of assets.
|
COAG
Response
COAG
agrees that a structured risk management process offers the best framework
for making strategic and operational decisions about bushfire mitigation and
management and supports the call in Recommendation 4.1 for the further
development and application of structured approaches in each state and territory.
The
Department of Transport and Regional Services, through Geoscience Australia,
is developing a national risk assessment framework, together with models,
tools and databases for sudden-impact natural hazards. Hazards of immediate
interest include earthquake, flood, severe wind and bushfire. The process
will develop a thorough understanding of environmental, biodiversity and
heritage assets. A key objective is to develop risk assessment capabilities
to enable the comparison of risk from these hazards across hazards and across
regions so that risk treatment options can be optimised against a common
understanding and common measures of risk.
COAG
notes that such work may have some resource implications and that
jurisdictions are able to explore the use of funding provided under the Natural
Disaster Mitigation Program, where appropriate.
|
Recommendation
5.1
Research,
information and analysis
The
Inquiry recommends the provision of additional resources jointly by the
Australian Government and the state and territory governments for the
following purposes:
- to
accelerate the research necessary for the characterisation of fuel loads and
dynamics for Australian ecosystems (both natural and exotic), the
characterisation of fire behaviour and ecological responses, the development
of ‘burning guides’ from this information, and the compilation of this
information and knowledge in nationally accessible databases; and
- the
establishment of a national network of long-term ecological research sites to
provide a basis for long-term monitoring of the impacts of fire regimes and
fire events.
|
COAG
Response
COAG
supports the research proposed in recommendation 5.1 and notes that research
on many of these areas is already being undertaken by a number of bodies
including the CSIRO, Geoscience Australia and the Bushfire Cooperative Research
Centre under its program covering Safe Prevention, Preparation and
Suppression. Such ecological research is long term with time frames
extending in excess of 10 years and is also central to the activities of the
Natural Resource Management Ministerial Council.
COAG
will request that the Bushfire Cooperative Research Centre provide advice
jointly to the Augmented Australasian Police Ministers' Council, the Natural
Resource Management Ministerial Council and the Primary Industries
Ministerial Council on the proposals to accelerate research into fuel loads
and dynamics, fire behaviour and ecological responses, the development of
burning guides and the compilation of these data into accessible databases,
as well as the proposal for a national network of ecological research sites.
The Centre, which is itself currently undertaking research of fire regimes
and the impact of fire on ecosystems and ecological processes, will be asked
to provide advice on whether there is any need for additional sites or further
resources to address long-term impacts. It will need to consult with other
bodies such as the CSIRO, the Bureau of Rural Sciences and Geoscience
Australia, in drawing together its advice. COAG will request the Augmented
Australasian Police Ministers' Council and the Natural Resource Management
Ministerial Council to coordinate advice on the need for additional sites, how
they might be administered and any resourcing requirements.
COAG
also notes the importance of Finding 5.3 of the Report which highlights the
role of the Bureau of Meteorology in providing high quality locally-specific
weather information and forecasting services. Jurisdictions expressed some
concern at the apparent withdrawal of some observation stations by the Bureau
as a result of resource pressures and the gaps this could leave in local
forecasting capacity. The Australian Emergency Management Committee will seek
advice from jurisdictions about perceived gaps in local fire weather
forecasting services as a basis for a discussion with the Bureau.
The
Committee shall report the outcome of those discussions, options for
addressing any identified problem areas and resource implications to the
Augmented Australasian Police Ministers' Council for consideration.
|
Recommendation
5.2
The
Inquiry recommends that the Australian Government and the state and territory
governments jointly provide additional resources and work in partnership to
establish and refine a national program of fire regime mapping.
|
COAG
Response
COAG
agrees on the importance of a nationally consistent framework that would
allow fire regime data to be shared between jurisdictions. A national
approach would focus on standards, coordination, responsibilities and
resourcing. As the Report noted, pioneering work has been done in this area
by the Western Australian Department of Land Information and the Tropical
Savannas Cooperative Research Centre and is complemented by the work of the
CSIRO through its Sentinel project and work in other jurisdictions.
Building
on this expertise COAG will request the Augmented Australasian Police
Ministers' Council, in consultation with the Natural Resource Management
Ministerial Council and the Primary Industries Ministerial Council, to bring
forward a proposal with the assistance of the Australia New Zealand Land
Information Council within 12 months, which addresses the scope to enhance
consistency and rate of mapping with regard to standards and responsibility
for the work in each jurisdiction. COAG notes that such work may have some resource
implications and that jurisdictions are able to explore the use of funding
provided under the Natural Disaster Mitigation Program, where appropriate.
|
Recommendation
5.3
The
Inquiry recommends that the Australian Government and the state and territory
governments continue to develop national consistency in data sets relevant to
bushfire mitigation and management under the Australian Spatial Data
Infrastructure framework, and within this context, identify and resource
national bushfire data set coordinators.
|
COAG
Response
COAG
recognises the existing work in all jurisdictions toward the collection of
relevant bushfire data sets and the initiative being undertaken at the
national level by Geoscience Australia, under the Disaster Mitigation
Australia Package, to develop consistent data for natural disasters. COAG
will request the Augmented Australasian Police Ministers' Council to engage
the assistance of the Australia New Zealand Land Information Council in the
development of proposals to enhance consistency in bushfire data collections,
noting that each jurisdiction will consider the appropriate mechanism for
coordinating data.
|
Recommendation
5.4
The
Inquiry recommends that the Australian Government, in partnership with the
states and territories and relevant research organisations, develop a
strategy for sustaining bushfire research and capacity building, in the
context of a risk-management approach to bushfire mitigation and management.
|
COAG
Response
COAG
supports strongly the importance of ongoing bushfire research and capacity
building arrangements and recognises the need to consider the issue beyond
the life of the Cooperative Research Centres. The Bushfire Cooperative
Research Centre was established in December 2002 and began its work in July
2003. It is in the early stages of its work and is funded until 2010. The
Bushfire Cooperative Research Centre aims to develop a comprehensive and
overarching understanding of the behaviour and danger of bushfires, gives
local differences in vegetation, land management and weather.
COAG
recognises the recent increased investment in bushfire research and the focus
on coordination which includes, but is not limited to, the Bushfire
Cooperative Research Centre. Other bodies engaged in bushfire-related
research include the Tropical Savannas, Desert Knowledge and Spatial
Information Cooperative Research Centres, the CSIRO, Geoscience Australia,
the Forest and Ecosystem Science Institute, Victoria, the Arthur Rylah
Institute for Environmental Research, the University of South Australia,
Australian National University, Melbourne University, University of Tasmania,
Griffith University, Charles Darwin University, Deakin University and the
University of Western Sydney. While it may be too early to decide on the
future form of the ongoing research capacity required, the Augmented
Australasian Police Ministers' Council is well placed to monitor the workings
of bushfire research arrangements and the performance of research agencies
drawing on information such as programmed reviews. COAG will request the
Augmented Australasian Police Ministers' Council to develop a proposal for
ongoing research timed no later than the five year review programmed for the
Bushfire Cooperative Research Centre.
|
Recommendation
6.1
Risk
modification
The
Inquiry endorses the recommendations in the Natural Disasters in Australia Report
relating to disaster mitigation through land use planning and development
controls and recommends that the states and territories continue to make
their advisory and statutory measures more effective.
|
COAG
Response
Land
use planning which takes account of natural hazard risks has been recognised
as the single most important mitigation measure for preventing future losses
from natural disasters. Work is already underway in the Local Government and
Planning Ministers' Council to address this issue and the Augmented
Australasian Police Ministers' Council is likely to become involved. COAG
strongly supports Recommendation 6.1 and will request a report on progress through
the Augmented Australasian Police Ministers' Council, within twelve months.
|
Recommendation
6.2
The
Inquiry recommends that the review of the Building Code of Australia, with
particular reference to the Construction of Buildings in Bushfire Prone Areas
Standard—to deal with resistance to natural hazards, including
bushfires—be completed by the Australian Building Codes Board as a matter of
priority.
|
COAG
Response
COAG
is concerned by the Report's observation concerning the delay in the review
of the building code and in particular the Construction of Buildings in
Bushfire Prone Areas Standard AS3959 by Standards Australia. COAG
supports Recommendation 6.2 and notes that the Australian Government Minister
for Industry Tourism and Resources will write to the Board identifying this
review as a priority and reinforcing both the urgency for, and benefits of,
encouraging Standards Australia to complete the revision of the Australian
Standard that follows COAG's Principles and Guidelines for National
Standard Setting and Regulatory Action by Ministerial Councils and
Standard-Setting Bodies and its enactment through the Building Code of
Australia. The Board will be asked to resolve as soon as possible any other
outstanding issues relating to the building code and natural hazards,
including bushfires.
|
Recommendation
6.3
All
states and territories should have a zoning approach to the classification of
fuel management areas, with clear objectives for each zone. The process
should be applied at the landscape scale, and all land managers and the
community should be involved.
|
COAG
Response
COAG
supports Recommendation 6.3. All jurisdictions reported that work is underway
in this area. COAG recognises that zoning approaches may help to maximise the
effectiveness of strategic prescribed burning. The Augmented Australasian
Police Ministers' Council and the Local government and Planning Ministers'
Council will work together on this recommendation with a view to establishing
arrangements for sharing information and enhancing approaches to zoning and
classification of fuel management areas. The Primary Industries Ministerial
Council, the Natural Resource Management Ministerial Council and the
Environment Protection and Heritage Council may also need to be consulted on
this work. The Augmented Australasian Police Ministers' Council shall report
back to COAG within 12 months.
|
Recommendation
6.4
The
Inquiry recommends that fire agencies, land managers and researchers continue
to work in partnership with Indigenous Australians to explore how traditional
burning practices and regimes can be integrated with modern practices and
technologies and so enhance bushfire mitigation and management in current
Australian landscapes.
|
COAG
Response
COAG
supports Recommendation 6.4, noting that traditional burning practices would
have particular significance in some landscapes. Individual jurisdictions
will continue efforts in this area drawing on the work undertaken by bodies
such as the Tropical Savannas Cooperative Research Centre.
|
Recommendation
7.1
Readiness
The
Inquiry recommends that each state and territory formalise non-exclusive
agreements with the Australian Broadcasting Commission as the official
emergency broadcaster, providing an assured standing arrangement. Similar
protocols with commercial networks and local media should also be
established.
|
COAG
Response
COAG
agrees that the electronic and print media have an important role in informing
the community about bushfire mitigation and management in preparation for
each bushfire season and in providing up-to-date information during bushfire
events.
Recommendation
7.1 calls for non-exclusive agreements with the Australian Broadcasting Corporation
as the official emergency broadcaster and similar protocols with commercial
networks and loca media. COAG supports the recommendation and notes that all
jurisdictions are working towards formalising agreements with the Australian
Broadcasting Corporation. COAG also supports the extension of these
arrangements to commercial networks where feasible.
Additionally,
COAG notes that there are series issues of consistent information and
cross-border overlap and coordination and that the Australian Emergency
Management Committee is already working to address these as a priority.
|
Recommendation
8.1
The
Inquiry recommends that implementation of a single Incident Control System
for the management of multi-agency emergency incidents be further examined by
the Australian Emergency Management Committee, with a view to developing one
nationally agreed system.
Recommendation
8.2
The
Inquiry recommends that the AIIMS Incident Control System be adjusted so that
it adequately allows for the identification and integration of local
knowledge during firefighting operations.
Recommendation
8.3
The
Inquiry recommends that a central function of the AIIMS Incident Control
System be the flow of adequate and appropriate information to threatened
communities, government, police and other emergency services authorities. The
incident controller should have overall responsibility for this.
Recommendation
8.4
The
Inquiry recommends that all Australian fire authorities adopt and continue to
use the AIIMS Incident Control System in accordance with Australasian Fire
Authorities' Council guidance and policies.
|
COAG
Response
A
lesson learnt from the recent bushfires is that maximising effective response
is a priority. The Report's recommendations in this area recognise the vial
importance of control and coordination through the Australian Inter-service
Incident Management System (AIIMS) Incident Control System. All fire services
have agreed to the national adoption of the recently reviewed AIIMS and also
all state emergency services (SES) have confirmed, through the Australian
Council of State Emergency Services, that they will adopt AIIMS on a phased state
by state basis.
COAG
supports Recommendation 8.1. The AIIMS has been adopted by some emergency
services agencies in all jurisdictions although further work, through the
Australian Emergency Management Committee will be necessary. The work of the
Australasian Fire Authorities' Council in providing the framework for
cooperation between jurisdictions has been essential.
COAG
supports Recommendation 8.2 that the system be adjusted to include local
knowledge during firefighting operations. COAG notes the progress in all
jurisdictions to identify and integrate local knowledge into firefighting
operations.
COAG
supports Recommendation 8.3 and notes that each jurisdiction is moving to
implement the recommendation including the training of appropriate personnel.
Jurisdictions will address training as a priority.
With
regard to Recommendation 8.4, COAG notes that all Australian fire services
have adopted and continue to use the AIIMS Incident Control System in
accordance with Australasian Fire Authorities' Council guidance and policies.
COAG
will request the Augmented Australasian Police Ministers' Council to monitor
progress by jurisdictions in relation to Recommendations 8.1 to 8.4 and
report on progress within 12 months.
|
Recommendation
8.5
The
Inquiry endorses the recommendations on warning systems in the report:
Natural Disasters in Australia. In addition, it recommends as follows:
- that
all fire ban advice and subsequent ‘bushfire threat warnings’ related to
specific fires be conveyed consistently in all states and territories,
including the use of the Standard Emergency Warning Signal when lives or
property are threatened; and
- that
the final structure of the warnings be based on the findings of the Bushfire
Cooperative Research Centre’s project Communicating Risk to Communities and
Others.
|
COAG
Response
Effective
warnings are essential in mitigating and managing bushfires and other natural
disasters. The Natural Disasters in Australia Report, prepared for
COAG in 2002, placed considerable emphasis on warning systems in its
recommendations and these have been accepted in principle by COAG.
COAG
supports Recommendation 8.5 concerning the adoption of nationally consistent
procedures for conveying fire ban advices and bushfire threat warnings.
Action will be coordinated through the Australasian Fire Authorities'
Council, in collaboration with the Bureau of Meteorology, towards achieving
standardisation of fire ban advices.
COAG
notes the work currently being carried out under the auspices of the
Australian Emergency Management Committee to develop draft guidelines for the
use of the Standard Emergency Warning Signal when lives and/or property are
threatened.
COAG
will request a progress report on these areas from the Augmented Australasian
Police Ministers' Council within twelve months.
|
Recommendation
8.6
The
Inquiry recommends that the Australian Government maintain leadership of and
support for the National Aerial Firefighting Centre for a further three
years, until the Bushfire Cooperative Research Centre has finalised its
research into the effectiveness of aerial suppression operations.
|
COAG
Response
The
Australian Government has already announced funding of $16.5 million for the
National Aerial Firefighting Centre ($5.5 million per annum for the three
years 2004-05 to 2006-07).
|
Recommendation
8.7
The
Inquiry recommends as follows:
- that
the approach that gives residents the option of leaving when confronted by a
major bushfire threat or making an informed decision to stay and defend their
home or property be adopted as a common national policy; and
- that
implementation of a ‘go early or stay and defend’ policy must be fully
integrated, with effective community education programs to improve
preparedness and support timely and informed decision making.
Provision
of training for fire, police and emergency services personnel in the
application of the 'go early or stay and defend' policy is essential if this
approach is to be applied safely—with particular emphasis on minimising
evacuations at the height of fire events. This should be supported by formal
agreements between the relevant authorities.
|
COAG
Response
COAG
recognises the importance of clear advice for residents during a bushfire,
but notes that the message of 'go early or stay and defend' needs to be
communicated carefully because in relation to other disasters it may not be
appropriate to allow a resident to stay. The Augmented Australasian Police
Ministers' Council will consider how to implement a nationally consistent
approach and provide guidance to jurisdictions on issues related to community
information, training and warnings for disaster situations.
|
Recommendation
9.1
The
Inquiry recommends that the Australian Emergency Manual—disaster recovery
be updated as a matter of priority by Emergency Management Australia, in
consultation with the states and territories, the Australian Local Government
Association, the Department of Transport and Regional Services and the
Department of Family and Community Services, to incorporate:
- the
lessons learnt from the recovery programs undertaken in relation to the
recent major bushfires; and
- the
outcomes of by the Community Services Ministers' Advisory Council’s review of
community support and recovery arrangements.
|
COAG
Response
The
Report points out that recovery from major bushfires is little different from
recovery from any other natural disaster and so should be considered,
wherever possible, from an all-hazards perspective.
An
updated version of the nationally agreed framework for recovery, the Australian
Emergency Management Manual – disaster recovery was published in
September 2004. The Manual will be further reviewed over 18 months to address
issues which emerge from the Community Services Ministers' Advisory Council's
Review of community support and recover arrangements, COAG's High Level
Report Natural Disasters in Australia: Reforming Mitigation, Relief and Recovery
Arrangements and COAG's National Inquiry on Bushfire Mitigation and
Management.
|
Recommendation
9.2
The
Inquiry recommends that the Insurance Council of Australia be asked to review
the industry’s code of practice in response to the lessons learnt from the
claims arising from the 2002–03 bushfires.
|
COAG
Response
COAG
notes the Inquiry's observations about significant levels of non-insurance
and in particular under-insurance, and the need for the insurance industry to
provide improved and more consistent advice to policy holders.
There
are also lessons to be learnt from the performance of the insurance industry
including the need to provide comprehensive information and the balance
between prompt settlement of claims and a cooling off period to allow for
consideration and review of settlement offers.
COAG
supports the recommendation to raise these issues with the insurance industry.
The Australian Government will write to the Insurance Council of Australia
asking that a review of the industry's code of practice take account of the
lessons learnt from the claims arising for the 2002-03 bushfires. This
approach is consistent with actions planned in relation to COAG's Natural
Disasters report.
|
Recommendation
10.1
Governance
and coordination
The
Inquiry recommends that the Australian Government formalise the coordination
of the development of policy on bushfire mitigation and management across
Australian Government departments and agencies and the provision of advice to
the Australian Emergency Management Committee and the augmented Australasian
Police Ministers’ Council.
|
COAG
Response
Administrative
arrangements put in place by the Australian Government involve a number of
agencies in the various aspects of policy and operational work in relation to
disaster mitigation, response and recovery. This reflects the diversity of
functions and skills involved. The Australian Government expects these
agencies to continue to work collaboratively to ensure the provision of
coordinated advice to Government and to inter-jurisdictional bodies such as
the Australian Emergency Management Committee and the Augmented Australasian
Police Ministers' Council.
|
Recommendation
10.2
The
Inquiry recommends that the Australasian Fire Authorities Council be co-opted
as an adviser to the Australian Emergency Management Committee whenever
bushfire mitigation and management are to be discussed.
|
COAG
Response
COAG
supports Recommendation 10.2. The Australian Emergency Management Committee
has recognised the value of advice that the Australasian Fire Authorities'
Council can provide on fire-related issues, including bushfire mitigation and
management. The operating arrangements agreed to by the Committee include
express provision to coopt representatives of the Council when that would
assist on discussion of relevant issues.
|
Recommendation
11.1
Knowledge,
learning and training
The
Inquiry recommends that the Australian National Training Authority establish
a National Safety and Security Skills Council to continue the development and
administration of the Public Safety Training Package, including competencies
and qualifications relevant to bushfire mitigation and management.
|
COAG
Response
COAG
acknowledges the importance of the development of arrangements to ensure
availability of appropriate training for those involved in protection of
public safety. The Public Safety Training Package which is funded by the Australian
National Training Authority contains some 52 units of competency dealing with
fire and 49 units covering emergency services. These units range in scope
from operational to management and are directly linked to appropriate
qualifications. The units have been developed after extensive consultations
with peak bodies. The Package is reviewed regularly with scope to make
changes to accommodate the latest technologies, additional skills or best
practices. The skills areas identified by the Inquiry are covered by an
Industry Skills Council and are sufficient to ensure the aims of Recommendation
11.1 are met.
|
Recommendation
11.2
The
Inquiry recommends that the states and territories and the Australian
National Training Authority provide additional funding, as necessary, to
registered training organisations to support the development and delivery of
learning and training resources to all firefighters.
|
COAG
Response
COAG
agrees that the need for appropriate training is essential and all
jurisdictions will consider the resourcing of training needs as part of their
normal budget processes.
|
Recommendation
11.3
The
Inquiry recommends that the Australasian Fire Authorities' Council and
Emergency Management Australia—in partnership with state and territory
agencies and other education and research institutions—coordinate a national
program of professional development focused on bushfire mitigation and
management. Under the program, partners would deliver nationally coordinated
professional development services to all jurisdictions.
|
COAG
Response
COAG
supports the need for national coordination of leading practice examples of
professional development and recognises the work already being done by the
Australasian Fire Authorities' Council and Emergency Management Australia in
offering a range of programs in generic and specialist areas including
emergency management and leadership development. COAG will direct the
Augmented Australasian Police Ministers' Council to oversee the
implementation of a nationally coordinated program.
|
Recommendation
11.4
The
Inquiry recommends that the Council of Australian Governments support and
fund the establishment of an Australian Centre for Bushfire Lessons Learnt,
for an initial period of five years.
|
COAG
Response
The
Report highlights the importance of ensuring that lessons learnt from
bushfires should be shared. COAG supports a mechanism, possibly internet-based,
to disseminate relevant data, resources, reports etc, on lessons learnt from
bushfires. This need not involve the establishment of a new agency, as the
function could be adopted as an additional role of an existing organisation
and potentially collocated with an agency such as the Australasian Fire
Authorities' Council, Emergency Management Australia or research
organisations such as the Bushfire Cooperative Research Centre.
COAG
will direct the Augmented Australasian Police Ministers' Council to develop
this proposal further for consideration by jurisdictions in 2005, identifying
any additional resources that may be required and focussing initially on
bushfires but with consideration given to other hazards in due course. COAG
notes the work currently being undertaken by the Tropical Savannas
Cooperative Research Centre to act in this capacity in regard to fire
management in northern Australia (including northern Western Australia,
Queensland and the Northern Territory).
|
Recommendation
12.1
Rural
fire service volunteering
The
Inquiry recommends that an opportunity for reimbursement of out-of-pocket
expenses should be available for each volunteer rural fire agency. In
addition, the Council of Australian Governments should decide on the question
of tax concessions as raised in the paper prepared by PKF Chartered
Accountants on behalf of the Western Australian Government.
|
COAG
Response
COAG
endorses strongly the Inquiry's acknowledgement of the vial and significant
contribution emergency services volunteers make to the safety and well-being
of Australian society. Recognition is an important part of volunteering but
COAG recognises that proposals that seek to provide financial recognition for
volunteers may not always be consistent with the volunteer ethos.
Some
jurisdictions have mechanisms for the provision of out-of-pocket expenses for
volunteers but these are atypical and, in some cases, are limited.
COAG
considers the matter of recognition for volunteers be acknowledged as a
general issue for consideration by individual governments. Further work to
clearly identify what is currently done to recognise volunteers and what else
might be done to strengthen recognition shall be undertaken by the Augmented
Australasian Police Ministers' Council with assistance from the Australasian
Fire Authorities' Council, with a progress report on best practice to be
provided to COAG within twelve months.
|
Recommendation
13.1
Reviewing
performance
The
Inquiry recommends that the states and territories agree to a common set of
national bushfire indicators of good practice, based on the five mitigation
and management factors it has identified—the 5Rs. These indicators, together
with an assessment against the proposed national bushfire principles, would
provide a consistent framework for review and reporting in each state and
territory.
|
COAG
Response
COAG
supports the need for a common set of national bushfire indicators of best
practice. Some jurisdictions raised concerns about changing terminology from
a PPRR (Prevention, Preparedness, Response and Recovery) approach to a 5 Rs
(Research information and analysis, Risk modification, Readiness, Response
and Recovery) model, noting that the existing approach already forms the
basis for reporting to the Productivity Commission, but agreed that a common
set of indicators could be used irrespective of the terminology adopted.
The
indicators would need to reflect the proposed national bushfire mitigation
and management principles and COAG will request that the development of
indicators be pursued by the Augmented Australasian Police Ministers' Council
in conjunction with work on the principles over the next twelve months. Such
work will need to draw on support from the Australian Emergency Management
Committee and the Australasian Fire Authorities' Council. Individual
jurisdictions will make decisions on how best to use the indicators for
reporting and review of bushfire mitigation and management.
|
Recommendation
14.1
National
principles for bushfire mitigation and management
The
Inquiry recommends that the Council of Australian Governments adopt a
statement of national principles as the framework for the future direction of
bushfire mitigation and management in Australia.
|
COAG
Response
COAG
agrees on the importance of national principles which underpin existing
approaches and set a framework that jurisdictions may wish to work towards.
Such
principles need to emerge from a process of consultation. The draft
principles that have been identified could be agreed as a starting point with
further consultation and any amendments necessary to be undertaken over the
next twelve months, overseen by the Augmented Australasian Police Ministers'
Council. A report and recommendations on endorsement of a final set of
principles will then be made to COAG.
At
the same time the Augmented Australasian Police Ministers' Council and the
Natural Resource Management Ministerial Council will be asked to look at the
development of common indicators which reflect the principles, recognising
that individual jurisdictions will make decisions about how best to use such
indicators for reporting and review.
|
Inquiry into the 2002-03 Victorian
Bushfires
|
Recommendations
|
Victorian Government Response
|
The
changing Victorian environment
Recommendation
2.61
That
DSE and CFA as part of their long term planning, and in conjunction with the
Commonwealth Bureau of Meteorology, consider ways in which evidence for
climate change and El Niño–Southern Oscillation cycle impacts on the
likelihood of unplanned fire, can be better incorporated into preparedness
and response planning.
|
Accepted
in principle.
Climate change evidence is difficult to assess due to annual variability.
DSE, CFA and the Bureau of Meteorology will pursue this through the new
Bushfire Cooperative Research Centre (CRC).
|
Weather
conditions before and during the fires of 2002-03
Recommendation
6.38
That
DSE institute additional routine data storage and analysis to supplement
current climate records with at least daily 3 pm values for the Grassland and
Forest Fire Danger Index, and Keetch-Byram Drought Index, for selected high
quality stations representing a cross-section of environments throughout
Victoria.
Recommendation
6.39
That
DSE and CFA, recognising that the Bureau of Meteorology does not routinely
store all variables required to produce the calculations and indices
necessary for research and planning into fire occurrence and behaviour,
develop appropriate systems to ensure that such current and historical
information is readily available and accessible.
|
6.38
– Accepted.
6.39
– Accepted. Additional
data can always assist the development of predictive models. This could be
done should resources and prevention priorities permit. The Bureau of
Meteorology may also be able to assist here.
|
Fuel
management in the high country
Recommendation
8.25
That,
according to available scientific evidence, a decision regarding cattle
grazing in the High Country should not be based on the argument that ‘grazing
prevents blazing.’
|
Accepted.
|
Fuel
management in 'Mallee': techniques and approaches
Recommendation
9.30
That
if ‘link’ burns continue to be used, then on-site weather sequences and fuel
conditions marking successful (‘within explicit prescription’) and
unsuccessful burns be documented.
Recommendation
9.31
That
the success of current buffers in terms of assisting suppression operations
be continually reviewed, evaluated and documented.
Recommendation
9.32
That
the creation of buffers by chaining and then burning swaths of mallee be
explicitly monitored for:
- the
risk of fire escapes during their establishment;
- their
effectiveness as a barrier to unplanned fire under various weather and fuel
conditions; and
- any
adverse environmental effects such as soil mobilisation and loss of
biodiversity.
Recommendation
9.33
That,
as a result of this monitoring, weather conditions for the safe conduct of
burning in such operations should be defined.
|
9.30
– Accepted.
This is currently occurring through the use of a portable weather station.
However, there is scope for greater monitoring.
9.31
– Accepted.
9.32
– Accepted.
9.33
– Accepted. An
evaluation of the environmental impacts commenced last summer. A more
comprehensive monitoring system will be developed.
|
Constraints
on prescribed burning in forests
Recommendation
10.65
That
a review of the fuel management zones be implemented with a view to reducing
the number of zones so as to focus clearly on
(i) asset
protection (especially at the Public/Private land interface); and
(ii) ecological
burns.
Recommendation
10.66
That
an explicit formulation of the interactions between terrain, fuel, ignition
pattern, time of day and weather be created to better define those days
suited to prescribed burning.
Recommendation
10.67
That
evidence of the rekindling or otherwise of spring prescribed burns in forests
be assembled and a model constructed and tested to see whether or not some
days in spring could be used for prescribed burning in certain circumstances
and places, especially in Zone 1.
|
10.65
– Accepted. When
the Code of Practice for Fire Management was first written it was
acknowledged that fewer zones would be desirable. A reduction is linked,
however, to improved understanding of the relationship between fire regimes
and biodiversity. A review of the Code is expected to be completed by 2005.
10.66
– Accepted.
Fire agencies are committed to increased use of data and evidence to improve
mitigation and prevention activities. This is a somewhat complex task and
resource implications will need to be examined, particularly priority against
other initiatives, such as the employment of more burning crews, increased
training of crews and related technological developments that will improve
hazard management.
10.67
– Accepted.
DSE already undertakes spring burning, particularly in Zone 1. Unexpected
warmer weather between spring burns and summer remains a major concern
however, and will be monitored closely.
|
How
can we measure the effectiveness of prescribed burning?
Recommendation
11.71
That
DSE:
- Provide
further training and/or field staff for the routine acquisition and reporting
of geographic data (maps of fire extent for prescribed and unplanned fires)
and fuel-array data (quantity, type, condition and arrangement before and
after fire as in the Overall Fuel Hazard Guide).
- Routinely
and explicitly report on measures of the effectiveness of the prescribed
burning program.
- Measure
the total area subject to prescribed burning treatment in each Fire
Management Zone each year along with the average proportion of that area
successfully burned.
- Develop
an explicit, routine system of evaluation, analysis and reporting of the
effects of prescribed burning in relation to environmental outcomes such as
conservation of flora and fauna and water quality.
- Train
more crews, use Project Firefighters more extensively (and CFA members or
MFESB firefighters where appropriate), to undertake prescribed burning.
Recommendation
11.72
That
DSE undertake a formal study of the level of prescribed burning in south
western Australia for its possible application in Victoria by comparing
respective fuel arrays, terrain, weather, ground access, staff, prescribed
burning days, areas conducive to prescribed burning and fire response
systems.
Recommendation
11.73
That
DSE and CFA map all unplanned fires greater than four hectares on public and
private land in order to further develop an understanding of the risk to
rural Victoria from unplanned fires.
|
11.71
– Accepted. A
new model for fire risk management which is being prepared for government
consideration will address these issues. Additional training requirements
will be considered in future budget processes.
11.72
– Accepted.
Western Australia practices are reasonably well understood but will be
studied further.
11.73
– Accepted.
DSE currently has this standard, through it is not always achieved. CFA will
establish processes and systems to enable identified unplanned fires to be
mapped.
|
Understanding
bushfire options: the decision to stay or go?
Recommendation
13.23
That
CFA further develops the information supporting the decision to stay or go,
to incorporate a better understanding of both the likely consequences of
leaving home at inappropriate times, and the conditions and emotional impacts
likely to be experienced during the passage of the fire front.
|
13.23
– Accepted. The
CFA currently prepares comprehensive information and assistance to
individuals and communities about fire preparation activities to help
communities protect their properties from wildfire. The CFA will continue to
work with communities to increase awareness of the likely consequences of the
decision to stay or go.
|
Community
education and information program
Recommendation
13.53
That
the three fire agencies (CFA, DSE and MFESB) develop and implement a joint statewide
fire awareness education and information program aimed at encouraging a
higher degree of personal and household self-reliance.
Recommendation
13.54
That
CFA should remain the lead agency in delivering the community education and
information program to rural Victoria.
Recommendation
13.55
That
CFA and MFESB:
- conduct
an annual survey of households to test the level of awareness and acceptance
of fire knowledge amongst Victorians; and
- regularly
measure whether access to information leads to safe behaviours.
Recommendation
13.56
That
the Coordinator-in-Chief of Emergency Management directs that all emergency
management agencies review, by June 2004, terminology and language in current
communication and public education material to ensure it is clear, easily
understood and consistent, particularly with regard to fire.
Recommendation
13.57
That
CFA and MFESB encourage householders to review their fire safety plan annually.
|
13.53
– Accepted. The
three fire agencies in Victoria provide a vital service to the community.
However, there are a number of ways in which households can reduce the risk
of fire. The CFA has been running programs, aimed at encouraging householders
within rural areas to develop preparation and survival plans. While these
educational campaigns have helped alleviate fire risk and provided guidance
in times of fire danger. To ensure that we are as prepared as possible in the
future and that consistent information is provided to households (regardless
of whether they live in urban or rural areas), the CFA, DSE and MFESB will
work together to develop a joint state-wide fire awareness education and
information program to encourage a higher degree of personal and household
self-reliance.
13.54
– Accepted.
13.55
– Accepted. CFA
routinely conducts surveys, the reliability of measuring safe behaviours is
most effectively measured through the CFA post incident analysis process.
13.56
– Accepted.
13.57
– Accepted. CFA
will continue to work towards these objectives, in partnership with other
agencies.
|
Community
Fireguard
Recommendation
13.75
That
CFA, in conjunction with isolated small communities, develop and promote a
suite of appropriate fire readiness and fire management strategies to meet
their needs.
Recommendation
13.76
That
CFA reports to the Minister for Police and Emergency Services on recommended
solutions and implementation strategies for isolated small communities by
June 2004.
Recommendation
13.77
That
CFA clarifies and restates the roles and function of existing Community
Fireguard Groups (including their relationship to the Municipal Fire Prevention
Plan) to members, coordinators, Incident Controllers and Municipal Emergency
Resource Officers, prior to the 2003-2004 fire season.
Recommendation
13.78
That
Community Fireguard Group coordinators’ names are supplied to their local
municipality for the 2003-2004 fire season, and are updated annually for use
in information exchange should a Municipal Emergency Coordination Centre or
Incident Control Centre be established.
Recommendation
13.79
That
CFA provides technical advice to Community Fireguard groups in the selection
and purchase of appropriate equipment and protective clothing for use on their
own land.
Recommendation
13.80
That
CFA, recognising the value of the Community Fireguard Group program,
undertake a review by June 2004 to identify opportunities to further develop
the program to ensure its continuing appropriateness in preparing communities
for fire into the future.
|
13.75
– Accepted. The
Community Fireguard program recognises that on days of extreme wildfire
danger, suppression capabilities are limited and the CFA cannot guarantee
protection to each property. On those occasions, the key to community safety
is the preparedness and response of the residents threatened. The CFA will
continue to work with isolated communities and local government to further
develop appropriate fire readiness and fire management strategies.
13.76
– Accepted.
13.77
– Accepted.
13.78
– Accepted.
13.79
– Accepted.
13.80
– Accepted. Detailed
plans to implement the recommendations will be developed. Any additional
resourcing requirements will be considered in future budget processes.
|
Public
awareness communication systems
Recommendation
13.93
That
the Coordinator-in-Chief of Emergency Management directs the Media
sub-committee of the State Emergency Response Committee to review the use of
the Standard Emergency Warning Signal and its accompanying message.
Recommendation
13.97
That
Victoria include an agenda item for both the National Emergency Management
Committee and the National Meeting of Emergency Services Ministers
recommending that the Australian Communications Authority review both the
Commercial Radio Codes of Practice and Guidelines, and Community Broadcasting
Codes of Practice, to ensure they provide necessary guidance and obligations
on radio stations during emergencies and in relation to emergency warnings.
|
13.93
– Accepted. CFA
will take a lead role in the review.
13.97
– Accepted.
|
Insurance
as a preparedness measure
Recommendation
13.103
That
CFA, in their education and information packages, encourage appropriate
insurance cover, and ensures that insurance becomes a part of the householders
annual checklist.
Recommendation
13.104
That
Government works with the insurance industry to explore options for
incentives such as a reduction in premiums for those who take appropriate
self-protection measures on their properties, similar to incentives for
anti-theft home security.
|
13.103
– Accepted. The
loss of a home, property or stock as result of wildfire can be devastating.
However, wildfire is, and should be, an insurable risk. Those members of the
community who choose not to insure against fire, are effectively
self-insurers and will bear the risk. It is important that individuals and
communities are encouraged to manage this risk appropriately and insure all
assets including fences, hay and standing fodder. The CFA will include, at
the next appropriate review time, insurance related information on the household
information packages and checklists.
13.104
– Accepted in principle. The government encourages self-reliance within the
community. However, there is a need to ensure that the Government does not
interfere with the insurance market, and hence affect the affordability of
insurance. The Government will examine with the insurance industry how it can
progress this matter further.
|
Municipal
fire prevention plan
Recommendation
14.46
That,
following the review of forest industry brigades, the Country Fire Authority
Act 1958 be amended to ensure that the forest industry brigades, which
are acting in an approved manner, have the same powers and rights as other brigades
when attending fires on public land or interstate.
Recommendation
14.47
That
CFA should not be given the power to direct forest industry brigades to
engage in fire prevention and suppression activities off their land, and that
decision should remain the responsibility of the plantation company.
Recommendation
14.57
That
CFA and the Plantation Industry jointly develop and agree on Fire Prevention
Guidelines for Plantations by June 2004, to be then promoted and distributed
by the Industry.
Recommendation
14.58
That
Municipal Councils:
- ensure
consistent approaches to planning for fire prevention and protection; and
- consider
existing rights of neighbours in planning development applications.
|
14.46
– Accepted.
14.47
– Accepted.
14.57
– Accepted. The
document is complete and ready for publication. CFA will pursue guidelines
for agricultural industries, and will consider resources and an appropriate
timeline to achieve this.
14.58
– Accepted. CFA,
DSE, the Department of Victorian Communities (DVC) will work with Municipal
Councils and the Victorian Emergency Management Council sub-committee (see Recommendation
14.93) and other stakeholders to ensure that there is a consistent approach
to planning for fire prevention and protection across municipalities.
|
A
new approach to municipal planning
Recommendation
14.91
That
Government review legislation for utilities operating within the state to
ensure their involvement in regional fire preparedness and mitigation
planning.
Recommendation
14.92
That
the Country Fire Authority Act 1958 be amended to:
- replace
the current Municipal Fire Prevention Plan and the requirement for a Fire
Prevention Committee with a Municipal Fire Management Plan, and Municipal
Fire Management Committee; and
- bring
together all stakeholders with an involvement in fire management for both
private and public land within the municipality.
Recommendation
14.93
That
the Victoria Emergency Management Council establishes a sub-committee by June
2004 to ensure an all-agency and appropriate industries’ policy framework is
developed and agreed in respect to the planning for fire prevention,
mitigation and suppression.
Recommendation
14.94
That
the new Municipal Fire Management Plan is informed by the policy directions
of the subcommittee of the Victoria Emergency Management Council.
Recommendation
14.95
That
the Municipal Fire Management Plan amendment includes appropriate provisions
for the audit of the plans including:
- content;
- process
of development and implementation; and
- compliance
reporting to the Victoria Emergency Management Council.
Recommendation
14.96
That
the Government identifies an appropriate body, or bodies, to undertake the
audit of the Municipal Fire Management Plans.
|
14.91
– Accepted.
14.92
– Accepted. The
Minister for Police and Emergency Services will direct the Department of
Justice to review the CFA Act, in consultation with the CFA, DVC, DSE and the
MAV.
14.93
– Accepted.
14.94
– Accepted.
14.95
– Accepted.
14.96
– Accepted.
|
External
influences on fire agencies prior to the 2002-2003 fire season
Recommendation
15.11
That
DSE and the Department of Primary Industries formalise an agreement by the
2003-2004 fire season documenting the policies, procedures and financial
arrangements relating to the availability of Department of Primary Industries
staff to be trained and released for fire prevention and suppression
activities on public land.
Recommendation
15.12
That
DSE investigates whether such agreements should exist with other government departments
and agencies, particularly those with officers located in rural Victoria who
may be involved in fire response and support operations in the future, based
on their expertise and experience.
Recommendation
15.13
That
DSE commences discussion with the Victorian WorkCover Authority in respect to
employer liability for those staff being released to, and directed by,
another agency in fire prevention and suppression activities.
|
15.11
– Accepted. Â DSE
and DPI have already commenced work on the agreement, which is close to
finalisation.
15.12
and 15.13 – Accepted. Agreements with Parks Victoria, Melbourne Water,
DPI and the CFA currently exist or are being developed. Agreements with other
agencies (eg DIIRD, DOI and VicRoads) will be actively pursued.
|
Impact
of the drought on water availability for firefighting
Recommendation
15.23
That
Government in the development of its statewide water policy includes
appropriate consideration of access to water for firefighting.
Recommendation
15.24
That
communities, public land managers, Water Authorities and Catchment Management
Authorities jointly identify and implement local and environmentally sound
solutions to improve the availability of water for firefighting through the
Municipal Fire Management Planning process.
Recommendation
15.25
That
the fire agencies develop contingency plans in relation to access to water
for firefighting, including where appropriate, the use of static, large
volume water tanks.
|
15.23
– Accepted.
15.24
– Accepted.
15.25
– Accepted. The
fire agencies will work with Catchment Management Authorities and Water
Authorities to develop appropriate contingency plans to improve access to
water for firefighting during drought periods.
|
Agency
resources
Recommendation
15.40
That
DSE and CFA review selection and training programs for Incident Controllers
and Incident Management Team members to ensure that they include all
necessary competencies in recognition that technical skills are only one
component of the required attributes.
|
15.40
– Accepted. DSE,
CFA and the MFESB will work together to enhance incident management
capability.
|
Agreements
and Memoranda of Understanding
Recommendation
15.54
That
the Statewide Fire Control Priorities:
- be
developed annually by CFA and DSE;
- be
endorsed by the Victoria Emergency Management Council;
- be
incorporated into the co-operative agreement between DSE and CFA; and
- inform
the Fire Control Priorities in the Municipal Fire Management Plans.
Recommendation
15.67
That
CFA continues to work with its Brigades to complete the integration of
AIIMS-ICS with the Group Structure for full implementation by the 2004-2005
fire season.
Recommendation
15.76
That
the Victorian fire agencies negotiate with their counterparts in New South
Wales and South Australia to put in place agreements for mutual aid and the
development of cross border strategy for the management of fires burning in
the vicinity of, or across, state borders, and these agreements are reviewed
annually.
Recommendation
15.77
That
any local level agreements developed to address geographically specific risks
or issues must be consistent with state-level arrangements.
|
15.54
– Accepted.
Annual Statewide Fire Control  Priorities are currently developed annually by
CFA and DSE and are incorporated into the cooperative agreement between DSE
and CFA.
15.67
– Accepted.
CFA is working towards achievement of this program and will monitor progress
toward full implementation.
15.76
– Accepted. DSE
has 'partial' border agreements already with NSW and SA. There is scope to
broaden these however, and include non-adjacent states as well as other
countries (in addition to the USA). DSE and CFA will actively and jointly
pursue cross-border agreements with NSW and SA. These agreements will be extended
to include cross-border fire management strategies.
15.77
– Accepted.
|
Information
management
Recommendation
15.87
That
Government supports the immediate development of financial models to analyse
and determine the appropriate level of investment in fire management
planning, preparedness and suppression on public land.
Recommendation
15.88
That
the financial models incorporate changes in public land use, particularly
‘Our Forests Our Future’, and the subsequent changes in fire management
priorities.
Recommendation
15.89
That
the financial arrangements incorporate full cost recovery for prescribed
burning to be undertaken over a number of weekends utilising Project
Firefighters, CFA volunteers and MFESB members.
Recommendation
15.90
That
Government reviews the funding for DSE for the 2004-2005 fire season to
ensure that appropriate resources are available for fire prevention planning
and preparedness.
|
15.87
– Accepted in principle. A robust financial model is likely to be complex
and no comprehensive wildland models currently exist. DSE will pursue the
development of a robust model but a medium term time frame is likely to be
more achievable.
15.88
– Accepted.
15.89
– Accepted. Work
is already underway on the financial arrangements and principles subject to
consideration of resourcing implications by government.
15.90
– Accepted.
|
Roads
and access tracks
Recommendation
15.105
That
DSE assesses the environmental and monetary cost of establishment and
rehabilitation of temporary tracks, per 100 km, constructed during
firefighting operations, and compare this with the recurrent costs of a
program of maintaining existing tracks.
Recommendation
15.106
That
DSE includes the cost of tracks, as above, in the development of financial
models to analyse and determine the appropriate level of investment in fire
management planning, preparedness and suppression on public land.
Recommendation
15.107
That
DSE undertakes community consultation on policies relating to public land roads
and access tracks, particularly in respect to fire management.
|
15.105
– Accepted.
15.106
– Accepted.
15.107
– Accepted.
|
Aerial
firefighting strategy
Recommendation
17.51
That
an appropriately resourced, national aerial firefighting strategy is urgently
required, and that the Victorian Government make representations to the
Commonwealth to support the Australasian Fire Authorities Council
recommendations.
|
17.51
– Accepted. Victoria
will continue to work with other states and territories and the Commonwealth
to achieve an effective national aerial firefighting capability.
|
Municipal
emergency coordination
Recommendation
18.12
That
Incident Control Centres and Municipal Emergency Coordination Centres be
collocated, wherever practicable.
Recommendation
18.13
That
DSE and CFA ensure that:
- when
a Municipal Emergency Coordination Centre is established in response to a
fire, an appropriately experienced, trained and briefed officer of the
control agency is appointed as liaison between the Municipal Emergency
Coordination Centre and the Incident Control Centre; and
- there
are appropriate training regimes in place to provide officers with the skills
necessary to perform the role of Emergency Services Liaison Officer in the
Municipal Emergency Coordination Centre.
Recommendation
18.14
That
DSE and CFA work in co-operation with the Municipal Emergency Response Coordinators
to develop and conduct joint exercises that practise the skills and test
procedures for operations of the Municipal Emergency Coordination Centre,
Municipal Recovery Centre and Incident Control Centres.
|
18.12
– Accepted. The
implementation of this recommendation will need to be managed in such a way
so as not to diminish the effectiveness of ICC operation.
18.13
– Accepted.
18.14
– Accepted. DSE
and the CFA will work with VicSES and Municipal Emergency Response
Coordinators to develop and conduct joint exercises.
|
Evacuation
Recommendation
18.21
That
Victoria Police ensure all police members understand the Victorian
legislation in relation to evacuation, and that any decision to recommend
evacuation remains with the Incident Controller.
|
18.21
– Accepted.
|
Divisional
emergency coordination
Recommendation
18.30
That
existing DSE and CFA regional coordination arrangements be reviewed and any
changes, such as the continued use of Integrated Multi-Agency Coordination
Centres, be reflected in the Victorian emergency management arrangements.
Recommendation
18.31
That
Victoria Police, CFA and DSE review the relationship between fire service
regional coordination arrangements and Divisional Emergency Response Plans
and that any changes be formalised in the emergency management arrangements.
|
18.30
– Accepted.
18.31
– Accepted.
|
State
level coordination of emergency response
Recommendation
18.42
That
a single state-of-the-art all hazards State Emergency Operations Centre be
established for Victoria. This could, if necessary, be implemented in stages,
initially incorporating DSE, CFA, MFESB and the State Aircraft Unit.
Recommendation
18.43
That
the options of collocating the State Emergency Response Coordination Centre
with the new State Emergency Operations Centre be explored.
Recommendation
18.44
That
the State Emergency Operations Centre develop and maintain strong and close
links with the State Emergency Response Coordination Centre, if collocation
is not possible.
|
18.42
– Accepted.
18.43
– Accepted.
18.44
– Accepted in principle. Further discussion with all relevant agencies will
be required to develop effective links between this proposal, the State
Crisis Centre and other operations centres.
|
Cooperation
between agencies
Recommendation
18.52
That
the Emergency Management Act 1986 be amended to require the
development of agreements that describe joint operational arrangements
between emergency response agencies.
Recommendation
18.53
That,
wherever possible, Incident Management Team members from DSE, CFA and MFESB
who are likely to be deployed together to manage fire, should train and
exercise together.
|
18.52
– Accepted.
18.53
– Accepted.
|
Deployment
of Metropolitan Fire and Emergency Service Board personnel
Recommendation
18.57
That
the MFESB continue to give priority to appropriate bushfire training for its
firefighters.
|
18.57
– Accepted.
|
Deployment
of Victoria State Emergency Service Personnel
Recommendation
18.61
That
VicSES, with the support of the CFA, includes basic fire safety training as
one of the competencies for the VicSES Volunteers.
|
18.61
– Accepted. This
program is already underway. However, a tailored training program is required
together with additional trainers to ensure timely roll out of the program.
|
Regional
emergency coordination
Recommendation
19.6
That
the emergency management arrangements be amended to require Police Divisional
Emergency Response Coordinators, in consultation with other response
agencies, to establish and document procedures and structures at regional
level in order to ensure there is:
- effective
monitoring of Incident Management Teams;
- effective
strategic management of resources;
- efficient
management of information flow within and between agencies, and between the
agencies and the community; and
- liaison
between the control agency and divisional and municipal emergency response coordinators.
|
19.6
– Accepted. During
implementation particular attention will be paid to ensuring AIIMS-ICS
fundamentals are not undermined and that clarity is maintained between the
role of the response agency, and coordinators at a regional level.
|
Structure
of Incident Management Teams
Recommendation
19.13
That
the practice of appointing Deputy Planning Officer, Deputy Operations Officer
and Deputy Logistics Officer in an Incident Management Team be abandoned.
This recommendation acknowledges the benefits of retaining a Deputy Incident
Controller from the support agency (in accordance with section 4.2.6 of the
Emergency Management Manual Victoria), to ensure that the command structure
of that agency is preserved.
|
19.13
– Accepted in principle. DSE and CFA are moving towards this type of structure.
However, this requires integrated processes and systems that support decision
making with appropriate information flow. Training and successional issues
are also relevant here.
|
Qualifications
for Incident Management Team members
Recommendation
19.17
That
the person appointed by DSE or CFA as Incident Controller for any incident
should have formal qualifications and accreditation in the Incident Control
System, be fully aware of the Victorian emergency management arrangements and
have access to local fire prevention and response planning, including the
Municipal Fire Management Plan.
Recommendation
19.18
That
CFA and DSE provide media training to all Level 2 and Level 3 Incident
Controllers.
|
19.17
– Accepted.
This is already current practice within DSE. CFA will further enhance the
access to community/municipal fire plans that include local prevention
preparedness response and recovery elements that will ensure the effective
management of fires in local areas.
19.18
– Accepted.
|
Incident
Control Centres
Recommendation
19.23
That
in the review of Incident Control Centre locations, DSE and CFA give due
consideration to:
- existing
public infrastructure that may provide suitable facilities; and
- opportunities
for collocation with Municipal Emergency Coordination Centres.
Recommendation
19.24
That
DSE and CFA review their joint planning for Incident Control Centres to
ensure that, wherever safe and practicable, those Centres are located close
to the fire area.
|
19.23
– Accepted.
The implementation of this recommendation will need to be managed in such a
way so as not to diminish the effectiveness of ICC operation.
19.24
– Accepted.
|
Transferring
control from one Incident Control Centre to another
Recommendation
19.29
That
DSE and CFA develop an agreed process for the effective transfer of control
from one Incident Control Centre to another, including processes for
communicating this change to fire ground supervisors and local communities.
|
19.29
– Accepted.
|
Application
of the Fire Control Priorities to incident action planning
Recommendation
20.12
That
CFA and DSE include agreed Fire Control Priorities in community awareness and
education material provided to the community before each fire season.
Recommendation
20.13
That
the fire agencies ensure that Incident Action Plans developed by Incident Management
Teams are consistent with, and built on, the agreed Fire Control Priorities.
|
20.12
– Accepted.
20.13
– Accepted.
|
Aggressiveness
of firefighting
Recommendation
20.26
That
DSE and CFA continue to stress firefighter safety as their highest priority
for incident managers and fire ground supervisors.
Recommendation
20.27
That
DSE and CFA ensure that agreed strategy and tactics, and the rationale, be
communicated to personnel involved in the fire fight and be included in
briefings for fire line personnel.
Recommendation
20.28
That
personnel assigned the roles of Division Commander, Sector Commander and
Strike Team Leader on the fire ground are actively encouraged to provide
input into the selection of strategies and tactics.
Recommendation
20.29
That
personnel assigned the roles of Division Commander, Sector Commander and
Strike Team Leader be given flexibility to alter tactics to take advantage of
changed conditions on the fire ground.
|
20.26
– Accepted.
20.27
– Accepted.
20.28
– Accepted.
20.29
– Accepted.
|
Consistency
of strategy
Recommendation
20.38
That
when Incident Management Teams implement significant changes to objectives
and strategies, these are effectively communicated to firefighters, fire
ground supervisors and affected communities, and are incorporated into the
broader organisational planning.
Recommendation
20.39
That
the ‘Incident Objectives’ established for any response should reflect the
endorsed Statewide ‘Fire Control Priorities’, and the relevant Municipal Fire
Management Plan.
Recommendation
20.40
That
CFA and DSE jointly develop procedures to ensure that a more consistent
strategic approach can be maintained at shift and tour of duty changes.
|
20.38
– Accepted.
20.39
– Accepted.
20.40
– Accepted. The
CFA and DSE are making significant progress in jointly developing procedures
to ensure a more consistent strategic approach can be maintained at shift and
tour of duty changes.
|
Use
of Local Knowledge
Recommendation
2 from the Interim Report
That
in preparation for the coming fire season, the CFA:
- modifies
its operational procedures to ensure that local knowledge is flexibly and
appropriately incorporated into tactical and strategic fire management;
- modifies
its operational procedures to allow for more flexible management of strike
teams; and
- continues
to work with its brigades to complete the integration of AIIMS-ICS with the
group structure.
Recommendation
3 from the Interim Report
That
DSE reviews procedures to ensure that all Incident Controllers and Incident
Management Teams have full access to those Departmental, Parks Victoria or
appropriately experienced and qualified community members who can provide
local knowledge and expertise in the development of fire suppression
strategies and that advice from the fire ground is incorporated into decision
making. |
Recommendation
2 from the Interim Report – Accepted. On 26 August 2003, the Government
adopted all six recommendations from the Victorian Bushfire Inquiry Interim
Report. The CFA has been working to modify its operational procedures to
implement this recommendation.
Recommendation
3 from the Interim Report – Accepted. DSE is reviewing its procedures to
ensure that all Incident Controllers and Incident Management Teams have full
access to appropriately experienced and qualified members of the community.
The Department's Suppression Manual is being updated to reflect this.
|
Information
gathering
Recommendation
20.54
That
DSE and CFA review methods of gathering and processing fire information to
ensure all methods are pursued to greatest effect.
|
20.54
– Accepted.
|
Briefings
Recommendation
20.61
That
DSE and CFA review the standards and protocols for documentation, including
mapping, provided to fire line managers as part of their briefing notes, to
ensure these are concise and appropriate.
Recommendation
20.62
That
operational briefings in multi-agency fires should, wherever possible, be
joint briefings of all agencies involved.
|
20.61
– Accepted. Improved
DSE protocols are currently being finalised. CFA will continue to develop
processes and systems to provide appropriate operational information (ie.
mapping) to Fireline Managers in a timely and accurate matter.
20.62
– Accepted. This
recommendation will be addressed in DSE/CFA pre-season briefings.
|
No
Go Zones
Recommendation
20.67
That
DSE and CFA ensure that:
- a
clear process is established for determining whether a specific location is,
or is no longer, a ‘no go zone’ or an area into which it is too dangerous to
deploy resources, and that affected communities are advised as soon as
possible of the determination, the reasons for such determination and what
actions they should take as a result; and
- where
the Incident Management Team, Division Commander, Sector Commander and/or
Strike Team Leader identify an area as a ‘no go zone’ or an area into which
it is too dangerous to deploy resources, the reasons for that designation are
recorded by the Incident Management Team in the incident log.
|
20.67
– Accepted. CFA
and DSE agree that the use of the term 'No Go Zone' creates confusion and are
reinforcing protocols to clarify situations where communities and
firefighting resources may be restricted due to safety concerns.
|
Use
of bulldozers
Recommendation
20.71
That
DSE and CFA work cooperatively to review the management and application of
bulldozers in fire suppression operations to ensure that they are used
effectively, appropriately and are adequately supervised.
Recommendation
20.72
That
quality control or performance assessments are routinely completed post fire
season, to ensure that contractors who have not performed to an agreed
standard are not re-engaged for the consequential rehabilitation works.
|
20.71
– Accepted.
20.72
– Accepted.
|
Keeping
track of firefighting resources
Recommendation
21.8
That
DSE, CFA, MFESB and VICSES work co-operatively to establish a common system
for resource tracking during major fires and incidents.
|
21.8
– Accepted.
|
Management
of firefighting resources in the field
Recommendation
21.14
That
DSE and CFA review the management of personnel deployed ensuring that:
- shift
changeovers of fire line personnel and fire line supervisors are conducted in
such a way that the fire line is not left inappropriately unattended;
- management
protocols for Strike Teams are made more flexible; and
- Strike
Team Leaders and Task Force Leaders undertake refresher training in the
management of resources under their control.
|
21.14
– Accepted.
|
Management
of privately owned firefighting resources
Recommendation
21.19
That,
as a matter of urgency and in consultation with stakeholders, CFA and DSE
develop and communicate clear guidelines on how and when privately owned
firefighting equipment should be integrated into the fire response.
|
21.19
– Accepted.
|
Firefighting
vehicles
Recommendation
21.21
That
CFA, having regard to terrain, continue to review the mix of firefighting
appliances currently in service. In particular, consideration should be given
to the number and distribution of smaller ‘slip-on’ type equipment.
|
21.21
– Accepted.
|
Communications
facilities
Recommendation
21.31
That
DSE and CFA work with the Bureau of Emergency Services Telecommunications to
ensure that rural communication issues are appropriately addressed in the
Statewide Integrated Public Safety and Communications Strategy, and that
priorities and business cases are agreed for critical issues.
Recommendation
21.32
That
CFA develop protocols to integrate Ultra High Frequency and Citizen Band
radios into their communication structures.
|
21.31
– Accepted in principle. Implementation will be subject to consideration of
a business case for a regional telecommunications strategy.
21.32
– Accepted in principle. CFA needs to retain the integrity of their command
and control of the VHF radio system. However, there is a need to integrate
the UHF/CB non emergency service radio system to assist and manage resources
on the fire ground.
|
Aircraft
operations and the State Aircraft Unit
Recommendation
22.60
That
the joint agencies introduce a system of performance measures for reporting
the effectiveness of aircraft in firefighting operations.
Recommendation
22.61
That
instances where demand for air support outstrips the supply of State Fleet
Aircraft available are recorded.
Recommendation
22.62
That
after each fire season, measures of the effectiveness of aerial firefighting
be collated, analysed and used for the assessment of the State Aircraft Fleet
composition and the adequacy of Training and Accreditation programs.
Recommendation
22.63
That
a systematic performance audit of State Aircraft Fleet contractors be conducted
jointly by agency and SAU personnel.
Recommendation
22.64
That
aviation contractors be required to submit a copy of their annual independent
regulatory compliance audit prepared for Civil Aviation Safety Authority to
the State Aircraft Unit.
Recommendation
22.65
That
training and competency programs for Incident Controllers should include
aircraft firefighting capability training.
Recommendation
22.66
That
more emphasis should be given to communication and discussion in regard to
State Aircraft Unit’s roles, responsibilities, practices and procedures.
|
22.60
– Accpted.
22.61
– Accepted.
22.62
– Accepted.
22.63
– Accepted.
22.64
– Accepted.
22.65
– Accepted.
22.66
– Accepted. DSE
and CFA will continue to address these recommendations through the joint
management of the State Aircraft Unit to ensure appropriate policy procedures
and management processes are established for the holistic management of
aircraft within Victoria.
|
The
challenge: maintaining communication with all fire-affected communities
Recommendation
23.21
That
in relation to the provision of information to communities affected by fires
and other emergencies, DSE and CFA ensure that:
- Incident
Management Teams understand that one of their primary responsibilities, in
cooperation with the Municipal Emergency Response Coordinator, is to keep the
community informed as to where the fire is and its likely path, what is being
done to combat the fire and any preparations the community should undertake;
- Community
Information Units are effectively integrated into the Incident Management
Teams; and
-
they
continue to develop a joint Internet-based communications tool to provide
information and advice to both affected and broader communities during fires.
Recommendation
23.22
That
the model of community engagement developed by DSE and CFA and applied during
the 2002-2003 fires is further developed and refined, particularly in regard
to short-duration, rapidly escalating incidents.
Recommendation
23.23
That
relevant Government agencies including Emergency Communications Victoria, the
Bureau of Emergency Services Telecommunications and the Victoria Police Media
Unit, evaluate the proposals put forward by the Australian Communications
Authority with respect to the hearing impaired.
|
23.21
– Accepted. DSE
and CFA will ensure that the information unit provides timely and accurate
information to all stakeholders including incident management personnel, media
and local communities, and that community information is a priority of
Incident Controllers.
23.22
– Accepted.
23.23
– Accepted. DSE
and CFA will ensure that the information unit provides timely and accurate
information to all stakeholders including incident management personnel,
media and local communities, and that community information is a priority of
Incident Controllers.
|
Radio
coverage in rural Victoria
Recommendation
23.30
That
consideration be given to formalising Australian Broadcasting Corporation
Local Radio as the official emergency radio station for Victoria, given it is
the only radio station that can cover the whole of the state.
Recommendation
23.31
That
Victoria Police Media Unit coordinate work with the Australian Broadcasting
Corporation and the emergency service agencies to implement this arrangement.
Recommendation
23.32
That
CFA and DSE work with Australian Broadcasting Corporation Local Radio to
identify black spots, and explore opportunities to further improve coverage
for broadcasting emergency information.
Recommendation
23.33
That
opportunities be explored to use community radio to complement other methods
of communication with isolated communities.
Recommendation
23.34
That
Interstate Agreements prepared by the fire agencies be reviewed to include
protocols for the joint release of consistent and appropriate information relating
to fires burning across state borders.
|
23.30
– Accepted.
23.31
– Accepted.
23.32
– Accepted.
23.33
– Accepted.
23.24
– Accepted.
|
Overview
of the recovery process
Recommendation
24.29
That
Municipal Emergency Resource Officers develop registers of volunteers willing
and available to provide assistance and support during the response to, and recovery
from, emergency incidents.
Recommendation
24.30
That
DPI actively promote as widely as possible within the community, the
agricultural recovery service available during emergencies to ensure that all
farmers are aware of the services provided.
Recommendation
24.31
That
VicRoads and Municipal Councils review procedures and processes to ensure
that the identification and delivery of remedial works on state and council
roads following emergency events are as efficient as possible.
Recommendation
24.32
That
the Victorian Government recommend to the Commonwealth Government that it
reviews eligibility for those without employment who may or may not be
engaged in an emergency response, and are unable to access the appropriate
infrastructure to register for financial assistance.
Recommendation
24.33
24.33
That Government funding for Community Development Officers engaged in
community support and rebuilding incorporates flexible resources to enable
the purchase of services from a range of providers to ensure choice for those
requiring support.
Recommendation
24.34
24.34
That the Emergency Management Act 1986 be amended to include a
provision that, on the recommendation of the Minister for Police and
Emergency Services as Coordinator-in-Chief of Emergency Management, or of
another Minister, the Premier establish a Ministerial Task Force to oversee
recovery in situations of extreme natural disaster or other emergency events.
|
24.29
– Accepted. Municipal
Recovery Managers will ensure that volunteer registers are developed and
maintained.
24.30
– Accepted. DPI,
DHS and municipalities will consider case management as a method of managing
the recovery of agricultural producers.
24.31
– Accepted. VicRoads
and municipal councils will also consider the impact of their prioritisation
on the local community.
24.32
– Accepted. DHS
has already initiated discussions with Centrelink regarding this matter. CFA
will liaise with DHS to ensure that CFA volunteers are eligible to gain
employment support programs from the date of their fire engagement, not from
the date of registration with Centrelink.
24.33
– Accepted.
24.34
– Accepted. DHS
will remain the coordinating agency under Victoria's emergency management
procedures and will support the Task Force in the event of an extreme natural
disaster or other emergency event.
|
Response
and recovery: two sides of the same coin
Recommendation
24.47
That
recovery is recognised as commencing at the same time as response and that
recovery planning and delivery is an integral part of the operations of the
Municipal Emergency Coordination Centres.
Recommendation
24.48
That
all departments, statutory authorities, utility providers and local governments
be made aware of the need to develop contingency plans for recovery
activities, and that such plans, and the associated public education and
information strategies, are included in the Municipal Emergency Management
Plans.
Recommendation
24.49
That
all agencies engaged in recovery participate in community briefings prior to
and during emergency events, to ensure recovery issues are reinforced and
communities are informed of the processes established to assist individuals –
including matters that are not the responsibility of Victoria, such as
Centrelink payments.
|
24.47
– Accepted.
24.48
– Accepted. A
review of the State Emergency Recovery Plan is currently underway. The review
will examine broader coordination structures and not just those limited
specifically to the 'human services sector'. This would include economic,
environment and infrastructure recovery.
24.49
– Accepted. Significant
stress can be reduced by the provision of appropriate information. DHS will
provide advice, through its Clinical Advisors, on the appropriate format and
languages for messages. The inclusion of recovery agencies in community and
incident briefings during an emergency event is supported. This will assist a
transparent movement from response to recovery utilising the same processes,
systems and facilities wherever possible.
|
Relief
and recovery – predictable, equitable, consistent
Recommendation
24.67
That
Government review the emergency relief and financial assistance policy, and
develop and communicate a predictable, consistent and equitable policy
designed to assist the community to recover from emergencies, including
natural disasters.
|
24.67
– Accepted. DHS
has already convened an internal review to examine issues around grants
payment and the application of the policy.
|
A
case management approach to recovery
Recommendation
24.76
That
DHS, in conjunction with local government, government departments and the
non-government sector, modify recovery planning at all levels to include a
case management approach supported by an appropriate information system to be
activated at the time of an emergency.
Recommendation
24.77
That
the Privacy Commissioner be asked for advice in the development of this
model.
Recommendation
24.78
That
the State Emergency Recovery Committee explore opportunities to establish a
'one-stop-shop’ approach wherever practicable following emergencies,
including a single telephone number to connect a person to all agencies
involved in the recovery process.
|
24.76
– Accepted. Work
has already commenced on developing a model of application.
24.77
– Accepted.
24.78
– Accepted.
|
Fencing
and rehabilitation – private land damage following fire suppression works
Recommendation
4 from Interim Report
That
Government initiates a review of the fencing policy for boundary and internal
fences damaged as a result of fire.
Recommendation
5 from Interim Report
That
Government develops a consistent policy for the rehabilitation/restoration of
private assets damaged or consumed in authorised fire suppression activity.
|
Recommendation
4 from Interim Report – Accepted. The government is currently conducting
a review of its policy relating to the replacement of fencing destroyed
during fires.
Recommendation
5 from Interim Report – Accepted. The government is currently conducting
a review of its policy relating to the rehabilitation/restoration of private
assets damaged or consumed in authorised fire suppression activity.
|
The
way forward: planning
The
balance between prevention/mitigation and response for public land
Recommendation
25.23
That
DSE, with adequate resourcing, moves to a 12-month cycle of fire management
to establish and maintain a more appropriate and balanced work program of
prevention/mitigation and suppression.
Recommendation
25.24
When
the research into prescribed burning and optimum fire protection described in
Chapter 11, and the financial analysis of appropriate funding levels for
prevention and suppression recommended in Chapter 15, are completed, DSE
should develop a business case with Department of Treasury and Finance for
assured funding to an agreed level over a three-year rolling cycle.
|
25.23
– Accepted. Ways
of doing this and resource implications are currently under consideration by
government.
25.24
– Accepted. The
timing of the business case has been advanced and is currently being
finalised for government consideration.
|
Managing
information
Recommendation
25.37
That
all emergency service agencies, CFA and DSE in particular, give greater
priority to information management – especially the collection, maintenance
and quality control of base data sets necessary for planning, operations and
program evaluation.
Recommendation
25.38
That
Government acknowledge the importance of spatial information as a key element
of planning, operations and program evaluation, and support the Geospatial
Emergency Information Network as a means of ensuring integrated and coordinated
information management on a whole-of-Government basis.
|
25.37
– Accepted.
25.38
– Accepted.
|
Model
of fire cover – 'Fire Safety Victoria' Strategy
Recommendation
25.55
That
Government confirms that the Model of Fire Cover/Fire Safety Victoria
strategy should be a seamless model for the whole of the state and include
both private and public land.
Recommendation
25.56
That
DSE commit appropriate resources to work with OESC in developing the bushfire
component of the model.
|
25.55
– Accepted.
25.56
– Accepted.
|
Planning
for emergencies at the local level
Recommendation
25.88
That
CFA, DSE, MFESB, VicSES, Victoria Police and OESC, in consultation with the
Municipal Association of Victoria, consult on the proposal to combine
Municipal Councils’ current responsibilities for the development of an
emergency management plan/committee, as required by the Emergency
Management Act 1986 and a fire prevention plan/committee as required by
the Country Fire Authority Act 1958.
Recommendation
25.89
That
this group reports to the Minister for Police and Emergency Services on
proposed legislative amendments to the Emergency Management Act 1986,
the Country Fire Authority Act 1958 and any associated legislation by
June 2004.
Recommendation
25.90
That
CFA, DSE and MFESB continue to develop the partnership approach for fire
safety with local government, industry and communities.
|
25.88
– Accepted.
25.89
– Accepted.
25.90
– Accepted.
|
Human
resources
Recommendation
25.114
That,
as a matter of urgency, CFA and DSE:
- develop
strategies to provide adequate and sustainable firefighting resources,
suitably trained and experienced; and
- advise
Government of these strategies.
Recommendation
25.115
That
all fire agencies include a formal mentoring scheme as part of their
workforce development programs; and that consideration be given to the use of
suitably competent and experienced individuals (such as retired staff), to
act as coaches or mentors with inexperienced Incident Controllers.
Recommendation
25.116
That
CFA, VicSES and other volunteer-based emergency service organisations develop
proposals in support of the strategies for sustainable volunteerism, and that
the State Government advocate these initiatives to the Federal Government.
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25.114
– Accepted. In
relation to DSE, work on the development of these strategies is well
underway, with discussions with government due to commence shortly.
CFA
and DSE have ongoing programs of human and physical resource planning and
management, and will continue to work with government to ensure ongoing
sustainability.
25.115
– Accepted. DSE
and CFA are working to ensure that personnel undertaking key incident
management roles are trained, skilled and competent to perform required
tasks, and mentoring will be incorporated as part of the training process.
25.116
– Accepted. The
Department of Victorian Communities will also contribute to the development
of the proposals.
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The
way forward: unified command and control
Response
to the CFA proposal
Recommendation
26.52
That
CFA, DSE, MFESB and Victoria Police jointly develop a unified command and
control system that better integrates with the state's emergency management
arrangements, and that this be endorsed by the Victoria Emergency Management
Council by July 2004.
Recommendation
26.53
That
this unified system include recommendations for the appointment of one person
or agency to be responsible for overall control of fire suppression activity
in country Victoria, including for any legislative reform considered
necessary.
Recommendation
26.54
That
a State Emergency Operations Centre be established to replace the existing
separate fire agency centres. This could, if necessary, be initially confined
to being a State Fire Operations Centre as recommended in Chapter 18, Part D.
Recommendation
26.55
That
the review of emergency operations centres by the Departments of Premier and
Cabinet and Treasury and Finance and the Office of the Emergency Services
Commissioner:
- explore
opportunities to significantly reduce the number of regional emergency
operations centres; and
- evaluate
opportunities to pre plan and establish ‘all hazards–all agencies’ emergency
operations centres at the regional or district level.
Recommendation
26.56
That
in doing so, this review must consult with the agencies mentioned above, and
others such as VicSES and the Departments of Human Services and Primary
Industries.
Recommendation
26.57
That
the Fire Management Branch of DSE be prescribed as an ‘emergency service
agency’ for the purposes of s21C (1)(a) of the Emergency Management Act
1986.
Recommendation
26.58
That
the fire agencies develop a program to significantly increase the amount of
joint training and exercises undertaken.
Recommendation
26.64
That
OESC will work with the fire agencies in developing implementation strategies
for recommendations agreed by Government.
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26.52
– Accepted. DSE
and CFA plan to build on and improve existing arrangements in light of this
report.
26.53
– Accepted in principle. The government will work closely with the relevant
agencies to further develop the proposal.
26.54
– Accepted. Desirably
all relevant agencies should be included. The role should be high level
command and coordination, since individual agencies will still require small
centres for smaller incident management and for detailed operational and
logistical requirements. The possibility of rotation of the management of a
common complex around the agencies will be explored
26.55
– Accepted.
26.56
– Accepted. DVC
will also be included in this process of review.
26.57
– Accepted.
26.58
– Accepted.
26.64
– Accepted. The
OESC will work with the fire agencies and the Department of Premier and
Cabinet.
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