Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management

October 2013 Published by the Victorian Government Department of Environment and Primary Industries Melbourne October 2013. © The State of Victoria Department of Environment and Primary Industries 2013 This publication is copyright. No part may be reproduced by any process except in accordance with the provisions of the Copyright Act 1968. Authorised by the Victorian Government, 8 Nicholson Street, East Melbourne. Print managed by Finsbury Green. Printed on recycled paper. ISBN 978-1-74326-599-4 (PDF) ISBN 978-1-74326-598-7 (Print) For more information contact the DEPI Customer Service Centre 136 186 Disclaimer This publication may be of assistance to you but the State of Victoria and its employees do not guarantee that the publication is without flaw of any kind or is wholly appropriate for your particular purposes and therefore disclaims all liability for any error, loss or other consequence which may arise from you relying on any information in this publication. Accessibility If you would like to receive this publication in an accessible format, such as large print or audio, please telephone 136 186, or email [email protected] Deaf, hearing impaired or speech impaired? Call us via the National Relay Service on 133 677 or visit www.relayservice.com.au This document is also available in PDF format on the internet at www.depi.vic.gov.au Contents

1. SYNOPSIS 6

2. REPORT CONTEXT 6

2.1 Introduction 6 2.2 Purpose of the Dandenong Ranges Landscape Bushfire Project 6 2.3 Definitions 7 2.4 Audience 7 2.5 Methodology 7 2.6 Dandenong Ranges Landscape Context 7

3. FUEL MANAGEMENT Strategies and Techniques 8

3.1 Public land legislation and policy 9 3.2 Private land obligations 9 3.3 Integrated Fire Management Planning 9

4. CURRENT FUEL MANAGEMENT TREATMENTS AND STRATEGIES 10

4.1 Planned Burning 10 4.1.1 Tree cover and treatable fuel 10 4.1.2 Prioritising where to burn 11 4.1.3 Deciding when to burn: Overall Fuel Hazard 12 4.1.4 Current Planned Burning in the Dandenong Ranges Landscape 13 4.2 Bushfire Hazard inspections and removal 13 4.3 Household vegetation clearance 13 4.4 Fuelbreaks 14 4.5 Roadside fuel management 14 4.6 Rail corridors 15 4.7 Horticulture & Grazing 15 4.8 Electric Line Clearance 16

5. HOW EFFECTIVE ARE OUR CURRENT TREATMENTS? 17

5.1 Measuring effectiveness using modelled residual risk 17 5.2 Scenario Testing: Treatment and Tenure modelling 18 5.3 Scenario Testing: Fire Management Zoning 19 5.4 Scenario Testing: Fire Operations Plan 20 5.5 Measuring effectiveness using Overall Fuel Hazard trigger levels 20

6. OPTIONS TO IMPROVE FUEL MANAGEMENT IN THE DANDENONG RANGES 22

6.1 Priority RISK Treatment Areas 22 6.2 Strategic Road Network, Control lines and Fuelbreaks 23

7. CONCLUSIONS 26

7.1 Key Findings 26 7.2 Key Recommendations 26

8. REFERENCES 27 Glossary

CEO – Chief Executive Officer CFA – Country Fire Authority DEPI – Department of Environment and Primary Industries DTPLI – Department of Transport, Planning and Local Infrastructure FMZ – Fire Management Zoning FOP – Fire Operations Plan FSC – Fire Services Commissioner HILI – Houseloss Ignition Likelihood Index IFMP – Integrated Fire Management Planning LGA – Local Government Area, also known as Shires or Municipalities. MFEP – Melbourne Fire and Emergency Program OFH – Overall Fuel Hazard PV – Parks Victoria VFRR – Victorian Fire Risk Register

List of figures

Figure 1: DEPI and Parks Victoria’s role in the Dandenong Ranges Landscape Bushfire Project 7 Figure 2: Dandenong Ranges landscape and associated local government areas (LGAs) 8 Figure 3: Extent of tree cover in the Dandenong Ranges landscape 10 Figure 4: Tree cover on public and private land in the Dandenong Ranges landscape 11 Figure 5: Overall treatability for planned burning 11 Figure 6: Location of existing Fire Management Zones on public land in the Dandenong Ranges landscape 12 Figure 7: VicRoads Road Network in the Dandenong Ranges landscape, and the associated road bushfire risk ratings 15 Figure 8: Modelled residual risk in the Dandenong Ranges landscape 17 Figure 9: Residual risk profile and treatment and tenure modelling for the Dandenong Ranges landscape 18 Figure 11: Dandenong Ranges landscape residual risk profile and Fire Operations Plan (FOP) modelling. Draft FOP 2014 Highly Treatable Data is currently unavailable. 20 Figure 12: Modelled overall fuel hazard (OFH) percentage by area per Fire Management Zone 21 Figure 13: Modelled overall fuel hazard (OFH) percentage by area per Fire Management Zone in 2015, after predicted implementation of the approved Fire Operations Plan 21 Figure 14: Priority Risk Treatment Areas in the Dandenong Ranges landscape, draft concept only 22 Figure 15: Dandenong Ranges landscape residual risk profile and modelled residual risk for Priority Risk Treatment Areas 23 Figure 16: All agencies combined annual roadside and fuelbreak slashing program 23 Figure 17: Strategic network of primary and secondary roadside bushfire control lines 24

List of tables

Table 1: Areas burnt in the past 30 years (1983 to 2012) 13 Table 2: Length of strategic control lines in the Dandenong Ranges landscape by road manager 25 1. SYNOPSIS

This report is an output of the Dandenong Ranges Landscape Bushfire Project, which contributes to the broader Fire Services Reform and describes the current fuel management treatments in the Dandenong Ranges landscape, the effectiveness of these treatments in managing the bushfire hazard and risk and recommendations for improvement. It is intended that the recommendations in this report be considered and implemented through existing agency planning processes, and be reviewed as our understanding of bushfire hazard and risk evolves.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 5 2. REPORT CONTEXT

2.1 Introduction · Enhance the safety of people through a shared In October 2011, Deputy Premier Peter Ryan launched responsibility approach, that engages agencies and the Dandenong Ranges Landscape Bushfire Project. The community members and Project reflects the desire to promote shared responsibility · Build more sustainable communities for bushfire management that has grown from the 2009 Victorian Bushfires Royal Commission and evolved A new fire management plan is not an output of the project; to become a driving force in bushfire and emergency instead the findings and products of the project will inform management. and enhance existing fire management planning processes. The Project was initiated by Craig Lapsley, Fire Services To achieve the project objectives, seven strategic Commissioner, following a joint request from the CEOs of themes were developed within the project (Fire Services Yarra Ranges Shire Council. City of Casey, City of Knox Commissioner, 2013). These themes are outlined in and Shire of Cardinia to address outstanding bushfire Figure 1. Each theme captures a priority area for bushfire management issues across the Dandenong Ranges management and includes issues affecting the communities common to each of the four Local Government Areas (LGA). of the Dandenong Ranges. Communities of the Dandenong Ranges are directly involved For each of the broad themes identified in the Dandenong in the project and provide advice, guidance and input that Ranges Landscape Bushfire Project, an agency was is considered in the development of future management identified to lead the development of ideas and to provide activities in this high bushfire risk area. advice to the Fire Services Commissioner. The Department of Environment and Primary Industries (DEPI) and Parks Communities, fire services agencies and land managers Victoria (PV) were asked to lead discussion of Theme 2, are being challenged to apply new ways of thinking “Managing the Hazard and Risk.” when preparing and planning for bushfire. This project is an important part of building knowledge, capability, partnerships and resilience to bushfire in Victoria. This report is broken into the following sections: · Report context: which explains why this report has been prepared, who it is for and how it relates to the broader Dandenong Ranges Landscape Bushfire Project including key findings and recommendations of the ‘understanding the hazard and risk’ component of the project. · Fuel management context: which describes our legislative responsibilities and current fuel management strategies and treatments in the landscape

· Modelling the effectiveness of current fuel management Figure 1: DEPI and Parks Victoria’s role in the Dandenong Ranges strategies in the landscape Landscape Bushfire Project

· Description of possible treatment options to mitigate the This report presents the outcomes of Theme 2. While DEPI risk of bushfire in the landscape and PV’s area of responsibility is public land, this report · Key findings and recommendations for improving fuel considers fuel management across the landscape. For management in the Dandenong Ranges landscape this reason the Country Fire Authority (CFA), VicRoads, and discussion of potential fuel management treatment and Local Government Authorities were engaged in the options across private and public land based on the development of this report. findings in Dandenong Ranges Landscape Bushfire Project: Understanding Hazard and Risk (DEPI, 2013a) 2.3 Definitions This report discusses bushfire risk within the Dandenong 2.2 Purpose of the Dandenong Ranges Ranges, including through the use of Bushfire Risk Landscape Bushfire Project Assessments. The Dandenong Ranges Landscape Bushfire Project aims Bushfire Risk Assessment describes the level of bushfire to: risk in the landscape, The assessment is based on the modeled spread and behavior of major fires, and the · Reduce the likelihood and consequences of major consequences that fire would have. bushfires impacting on communities in the Dandenong Ranges Fuel hazard is the effect of fuel on fire behaviour, this may include the fuel type, the age class or other ecological fuel · Develop cross-boundary strategies to inform other levels aspects – it does not take into consideration impacts to of planning and activity. things like life and property. · Develop methodologies that inform bushfire safety planning in other high risk areas.

6 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Bushfire risk – The International Standard for Risk (Figure 2). It includes 8,900 ha of ‘built-up’ land, and is Management (ISO 31000) defines risk as the effect home to 170,000 people. The Dandenong Ranges are a of uncertainty on objectives. In a bushfire context this popular tourist destination, particularly over the summer would include the effect of uncertainty on our objective of months, with large numbers of people visiting attractions like protecting human life and property. the Puffing Billy Railway, Mount Dandenong, Bunyip State Park, Cardinia Reservoir and Emerald Lake Park.

2.4 Audience Critical assets within the Dandenong Ranges This report is provided to the Fire Services Commissioner landscape include: for consideration. It is understood the content of this report · the Puffing Billy Rail line and stations will be shared and discussed with both the Dandenong Ranges Landscape Bushfire Project Executive Committee · Cardinia and Silvan reservoirs and Project Management Boards and that some of the · Cardinia and Silvan water catchments information provided in this report may be used to inform the development of other themes and to produce information for · Silvan Chlorine treatment plant the broader community. · SEC power easement · Dandenong Ranges tourist attractions 2.5 Methodology · Upper Beaconsfield and Gembrook water and The following methods were used to identify areas where communications towers fuel management can be used to reduce the risk of major bushfires to life and property: · Melbourne, Cardinia, Monbulk, Silvan and Silvan-Waverley water treatment plants 1. Research existing fuel management treatments across the landscape · Wandin North, Seville and Seville east repeater tower 2. Explore legislative and policy requirements · Kleen Heat gas depot 3. Identify opportunities for improvement and any barriers · Hoddles Creek, Montrose and Yellingbo telephone exchange 4. Consult with other agencies to develop recommendations · Yellingbo Gas Bleedoff Valve 2.6 Dandenong Ranges Landscape · Helmeted Honeyeater and Leadbeater’s Possum Context populations · Dandenong Ranges National Park and Bunyip State Park; In 2010, DEPI, in conjunction with Parks Victoria, committed to undertaking risk-based bushfire management planning · TV reception towers, and across Victoria. Victoria was split into seven Bushfire Risk Landscapes (BRLs), including the East Central BRL, of · Major roads including Mount Dandenong Tourist Road, which the Dandenong Ranges landscape is wholly a part of. Burwood, Princes East and Warburton Highways and the A key outcome of risk-based bushfire management planning Princes Freeway. is a DEPI Strategic Fire Management Plan, which will be The Dandenong Ranges landscape has experienced produced for each bushfire risk landscape (BRL). Within the multiple major bushfires: East Central BRL, sub-landscapes have been defined. The Dandenong Ranges Landscape Bushfire Project area is one 1962: bushfires in the Dandenong Ranges resulted in one of these sub-landscapes. fatality and more than 300 houses destroyed. The Dandenong Ranges landscape covers 103,000 1968: 53 houses were lost during a bushfire in The Basin hectares (ha) and is characterised by large areas of dense and Ferny Creek areas (DEPI, 2013c). forest, interspersed with urban areas, hobby farms, and 1983: Ash Wednesday fires resulted in 27 lives lost and 545 niche primary industries such as berry and flower farms. houses destroyed in the Upper Beaconsfield and Cockatoo As the closest mountain range to Melbourne CBD, the areas (CFA, 1983). Dandenong Ranges is home to a large number of ‘tree change’ residents who commute to the city for work. Of the 1997: Small but intense fires have caused the loss of 41 landscape, 19% (19,300 ha) is DEPI/PV managed public houses and three lives in the Ferny Creek area (CFA and land and 48% (49,000 ha) is currently mapped as having NRE, undated). tree cover. During and just after Black Saturday in 2009, bushfires were This landscape incorporates parts of Yarra Ranges Council, also ignited in the Dandenong Ranges landscape (Victorian City of Knox, Shire of Cardinia and City of Casey LGAs Bushfires Royal Commission, 2010a).

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 7 Dandenong Ranges Area

Figure 2: Dandenong Ranges landscape and associated Local Government Areas (LGAs)

3. FUEL MANAGEMENT STRATEGIES AND TECHNIQUES

Land managers, fire agencies and property owners reduce As the primary means of effectively treating broad areas of bushfire risk by reducing fuel hazards, such as leaf litter, fuel much of the following discussion centres on planned grass, bark and shrubby vegetation. burning, this does not mean that other fuel treatment options should not be explored. Reducing these fuels limits the potential for bushfires to spread and do damage within the landscape. In high risk areas this is achieved over broad areas primarily by planned 3.1 Public land legislation and policy burning. To develop an effective and efficient fuel management A number of other methods are also used to reduce fuels, strategy, agencies must clearly understand their legislative including slashing undergrowth, mowing, and creating and responsibilities. For Public land managers the following maintaining fuelbreaks. These methods are often used along legislation and policies apply. roadsides, track edges and public land boundaries. Under section 62(2) of the Forests Act 1958, the Secretary A technique known as ‘candling’ is becoming a more has responsibility for carrying out “proper and sufficient work common practice on public land in fuelbreak maintenance in state forests, national parks and on protected public land and planned burn preparation. Candling involves use of a – (a) for the immediate prevention and suppression of fire; modified drip torch to remove some of the bark from the and (b) for the planned prevention of fire.” trees on fuelbreaks, or on the edges of planned burns, to Relevant policy informing fuel management strategies for public reduce the embers and subsequent spotting caused by land to deliver on these responsibilities is set out in the Code of bark during bushfires or planned burning. Practice for Fire Management on Public Land (Department of Other fuel management activities that occur mainly on Sustainability and Environment (DSE), 2012) and the Victorian private land within the Dandenong Ranges landscape Government’s response to the 2009 Victorian Bushfires Royal include grazing, ploughing, mulching and herbicide Commission (Premier of Victoria 2013). application. As a result of these statutory responsibilities and the policy

8 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management documents referred to in the preceding paragraph, public management planning activities of government, the fire land managers should adopt the following strategies when management sector and communities by: planning for fuel management: · Improving the links and interactions between state, · A strategic risk-based approach with protection of human regional, municipal and local level planning processes life the highest priority; · Planning across land tenures · Consideration of both life and asset protection, and · Improving community and organisational engagement ecological management objectives; · Initiating fire management planning that is broader · Zoning of public land to reflect fuel management than fire and emergency services and includes other strategies; land management organisations, land owners and the · An increased planned burning program. community Councils and public authorities (i.e. VicRoads) have the · Linking fire management planning to a standard risk responsibility under section 43 of the Country Fire Authority management approach Act 1958 to “…take all practical steps (including burning) to · Planning across the emergency management continuum prevent the occurrence of fires on, and minimise the danger of prevention, preparedness (including fuel management), of the spread of fires on and from (a) any land vested in it or response and recovery, and under its control or management and (b) any road under its care and management.” · Incorporating performance management and continuous improvement mechanisms.” (State Fire Management 3.2 Private land obligations Planning Committee, 2010, pg. 5) Private property owners have a responsibility to manage The Dandenong Ranges landscape intersects two Victorian fuels on their land in order to protect their own assets and Government regional boundaries (Eastern Metro and those of their neighbours. The Country Fire Authority Act Southern Metro) and is therefore covered by both of these 1958 provides for Fire Prevention Notices to be issued to Regional Strategic Fire Management Planning Committees private property owners where it is deemed necessary to and Regional Strategic Fire Management Plans. As protect life or property. Typically, a notice will be served mentioned, the landscape also intersects four LGAs (Knox, on a property by municipal Fire Prevention Officers for the Casey, Cardinia and Yarra Ranges), and is therefore covered removal or abatement of a fuel hazard that is likely to impact by four Municipal Fire Management Planning Committees on the ability of surrounding properties to be effectively and Municipal Fire Management Plans. defended in the event of bushfire. One of the tools used in IFMP to undertake risk assessment is the Victorian Fire Risk Register (VFRR). As part of this 3.3 Integrated Fire Management Planning assessment, assets are identified, the level of risk to these assets, and risk mitigation treatments. Many of these In Victoria, an Integrated Fire Management Planning treatments include fuel management options. (IFMP) Framework (IFMP, undated) is in place. The IFMP Framework builds on existing processes to support It is intended that integrated fire management planning will the integration, consistency and coordination of the fire draw from the findings and products of this report.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 9 4. CURRENT FUEL MANAGEMENT TREATMENTS AND STRATEGIES

There are numerous types of fuel management treatments 4.1.1 Tree cover and treatable fuel that are currently used within the Dandenongs landscape Whilst it is important to treat or reduce fuel levels in forests, on both private and public land, including: planned burning, not all areas are easily fuel reduced. Wetter forests like household vegetation clearance, fuelbreaks, roadside fuel Mountain Ash will not burn under normal prescribed weather management, rail corridor clearing, grazing, electric line conditions or at times of the year when it is safe to do so, clearance. yet during a dry and hot summer they will burn in a bushfire event. 4.1 Planned Burning To understand the options available to reduce fuel levels it is The decision about where and when to burn is based important to understand which forest types will burn under generally on three factors: safe planned burning conditions and which areas will not, this is referred to as the ‘treatability’ of the fuels. · Where fuels can be treated (treatable fuel) The Dandenong Ranges landscape covers approximately · When fuels can be treated (overall fuel hazard) 102,900 hectares of which 24% (or 24,400 hectares) is · Which areas are prioritised for treatment (zoning) public land and 76% is private land. Some 48,600 hectares of the project area is mapped as having tree cover (Figure 3) of which 40% is on public land and 60% is on private land (Figure 4). Tree Cover – Dandenong Ranges

Figure 3: Extent of tree cover in the Dandenong Ranges landscape

10 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Private Property – Tree Covered: 28% 20,954ha – Not Tree Covered: 48% 49,086ha

Public Land – Tree Covered: 20% 20,954ha – Not Tree Covered: 4% 4,028ha Of the forest area that can be fuel reduced by planned burning, 66% is on private property. Figure 5 shows the distribution of forested areas and their overall treatability or suitability for planned burning.

Figure 4: Tree cover on public and private land in the Dandenong Ranges landscape

Treatability – Dandenong Ranges

Figure 5: Overall treatability for planned burning

This way of describing overall treatability that classifies areas It is acknowledged that there are many impediments into high, moderate and low can be used as a surrogate for to burning private property including liability, practical seasonal conditions. One could consider high treatability boundaries, houses and other assets within the forest area areas as areas that will burn in most years whereas and the resources and expertise to burn safely. However moderate treatability areas are dry enough for burning under analysis demonstrates that a significant component of the prescribed burning conditions less often. In drier years hazard is on private property and fuel treatment on public such as 2009 both high and moderate treatability areas are land alone will only address a proportion of the risk. predicted to burn whereas in wetter years such as 2013 only the high treatability areas will burn. 4.1.2 Prioritising where to burn The key to an effective fuel management program is Although DEPI is only responsible for fire management ensuring that works are focused on areas that will reduce on public land, a significant proportion of treatable land the bushfire risk. On public land, fire management zoning is located on private property. These properties are often is used to communicate fire management strategies to located close to assets. Any consideration of risk should staff and guide on-ground activities. A similar approach on consider the role this private land plays in creating bushfire private land may lead to more effective and coordinated fuel risk and more importantly what role it could play in reducing management programs across the landscape. the risk of bushfires if it were treated.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 11 Zoning on Public Land types, maximum overall fuel hazard ratings, topographical The objectives of planned burning on public land is generally alignments and bushfire behaviour. determined by the Fire Management Zone in which the The four types of Fire Management Zones are: burning is undertaken (refer to the Code of Practice for Fire Management on Public Land, 2012). Whilst most public land · Asset Protection Zone; managed by DEPI or PV has been zoned, there are areas of · Bushfire Moderation Zone; public land managed by other agencies or Committees of Management that have not yet been zoned. · Landscape Management Zone; and, Fire Management Zone placement on public land is · Planned Burning Exclusion Zone. determined through strategic bushfire management Figure 6 shows the location of existing Fire Management planning. When choosing fuel management strategies Zones on public land within the Dandenong Ranges (which are expressed through the fire management zones), landscape. Note that currently Asset Protection Zones consideration is given to bushfire risk to life and property occur mainly in the Dandenong Ranges along the top of the and community infrastructure, practical and achievable western face close to ridge top townships. Some areas of burning outcomes, appropriate fire regimes for vegetation Bushfire Moderation Zone also occur here.

Fire Management Zoning

Figure 6: Location of existing Fire Management Zones on public land in the Dandenong Ranges landscape

Fire Operations Plan 4.1.3 Deciding when to burn: Overall Fuel Hazard Each year, a rolling forward program of burns and works To implement an efficient fuel management strategy it is (the Fire Operations Plan) is prepared by DEPI which important to not only know which areas are practical to outlines the short to medium-term implementation of treat, but also the areas where fuel has accumulated to bushfire management strategies on public land, particularly dangerous levels, i.e. where the overall fuel hazard has for prevention and preparedness. The Fire Operations reached trigger levels for treatment. Plan is used to engage with and inform the community of The overall fuel hazard is defined in the East Port Phillip operations planned for the following three years. The plan Fire Protection Plan (2003, page 53) as “the combination of is made available for public inspection and comment each bark, elevated fuel and surface fine fuel hazard. The overall year prior to the bushfire season. Currently burns conducted fuel hazard relates to the ability of suppression forces to by the CFA and Melbourne Water are not included in DEPI control a fire.” Fire Operations Plans and there is no existing process to display these burns to the public.

12 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management A methodology for conducting field assessments and 4.2 Bushfire Hazard inspections and descriptions of the overall fuel hazard ratings can be found in the Overall Fuel Hazard Assessment Guide, 4th Edition removal (DSE, 2010). The East Port Phillip Fire Protection Plan (DSE, Property owners have a responsibility to manage fuels on 2003) defines trigger for overall fuel hazard levels per Fire their land in order to protect their own assets and those Management Zone, which provide an indication of when an of their neighbours. Under the Country Fire Authority Act, area should be ideally burned. For instance, when an area 1958, the Municipal Fire Prevention Officer has the power designated as Asset Protection Zone reaches an overall fuel to issue Fire Prevention Notices on private properties where hazard of high, this area should be scheduled for burning. the inspecting officer deems that it is necessary in order to Following scheduling, when the burn is carried out will be protect life or property. Typically, a notice will be served on a subject to other considerations such as suitable weather property for the removal or abatement of a fuel hazard that conditions and the availability of necessary resources. is likely to impact on the ability of surrounding properties to be effectively defended in the event of fire. 4.1.4 Current Planned Burning in the Dandenong Ranges Landscape If someone is concerned about possible bushfire hazards on a neighbouring property or any other land, then this can Almost all of the planned burning that has occurred in the be reported to the Municipal Fire Prevention Officer. The Dandenong Ranges landscape over the past 30 years (since complaint will be investigated and may result in a notice Ash Wednesday) has been undertaken on public land. being issued. Annual Fire Hazard inspections are carried Table 1 shows that over this period a total of 7,819 hectares out by municipalities and form part of the Municipal Bushfire of public land in the landscape has been treated by planned Management Plan. burning. In the City of Casey for instance, Council implements an This area is comprised almost entirely of land managed by annual fire prevention inspection program which sees Parks Victoria, Melbourne Water and DEPI. Taking all Parks officers inspecting 2180 properties over 20,000sqm in size Victoria and relevant DEPI land into account this equates to twice throughout the fire season. Local Laws deal with all about 272ha or about 3% of all public land properties under this size for long grass issues during this time. Table 1 also shows that 12,088 ha have been burned by bushfires over the past 30 years. 4.3 Household vegetation clearance LGA Bushfire area Planned Total area (ha) burns (ha) burnt over 30 A well prepared house with adequate defendable space years has a greater chance of surviving a bushfire. Defendable Cardinia 8785 3536 12321 space helps protect a house from flames and radiant heat. Vegetation management including tree clearing and Yarra Ranges 2086 3972 6058 plant selection is important in maintaining this space. Casey 1080 105 1185 CFA provides Fire Ready kits to help homeowners identify Knox 137 206 343 defendable space requirements. Total 12088 7819 19907 After the 2009 Black Saturday bushfires the Victorian Table 1: Areas burnt in the past 30 years (1983 to 2012) Government introduced new vegetation management rules which simplified residents’ entitlements to clear native A relatively small amount of planned burning (under CFA vegetation around their property for bushfire protection. direction) has occurred on municipal bushland reserves, These changes included new exemptions from the need for roadsides and private land within the region over the past a planning permit to remove native vegetation to help reduce 10 years in Cardinia Shire, Yarra Ranges Shire Council and fuel load around existing homes. City of Casey, but this has been very limited (less than 5 ha per year per LGA) and contributes a small percentage to In all areas within the Bushfire Management Overlay, the overall total. There are no mapping records of areas of landowners can clear without a permit any vegetation, planned burns undertaken on private property or roadsides. including trees, within 10 metres of their house and any Recently, CFA has invested significant resources to increase vegetation (except for trees) within 50 metres of their house the amount and effectiveness of fuel reduction burning (CFA, 2011). For LGAs outside of the Bushfire Management on private property . Vegetation Management Officers are Overlay, but within a Bushfire Prone area, landowners can working to improve the capability of local CFA brigades and clear without a planning permit: any vegetation, including community members to undertake planned burning. The trees, within 10 metres of a house and any vegetation Vegetation Management Officers are also working closely (except for trees) within 30 metres of a house, as long with DEPI and public land managers to effectively target as the house was built or approved to be built before 10 areas to burn to reduce bushfire risk. September 2009 (CFA, 2011). DEPI is committed to displaying proposed planned burns In areas where the 10/30 rule applies landowners can also and works on ‘other public lands’ such as Melbourne Water clear any vegetation for a combined maximum width of 4 and local government lands, on the DEPI fire website. metres across existing boundary fences (CFA, 2011).

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 13 4.4 Fuelbreaks developed a strategic fire road network and prioritises maintenance funding to ensure this network is operational A well established and properly maintained fuelbreak for effective bushfire response. network provides access for firefighters and tactical control lines for bushfire control and planned burn operations. By CFA Roadside Fire Management Guidelines (undated) supporting effective bushfire suppression activities, fuel provide for the following objectives; breaks help protect high value assets, critical infrastructure 1. Prevent fires on roadsides; and communities vulnerable to damage by bushfire. 2. Contain roadside fires; Most larger tracts of public land (including land managed by Melbourne Water) within the Dandenong Ranges landscape 3. Manage safety of road users (planning by Victoria Police have well established fuelbreak networks. Widths of these and CFA); fuelbreaks are generally between five and 20 metres. In 4. Provide control lines (planning by the fire services); and some parks and municipalities, additional broad acres areas are also slashed annually for fire protection purposes. 5. Ensure recovery of roads and roadside vegetation after fires. A major state government funded program known as the Melbourne Fire and Emergency Program (MFEP) upgraded VicRoads has developed a Road Bushfire Risk Assessment and extended the existing fuelbreak network on public Guideline (2013) in response to Recommendation 62 of land in the Melbourne urban bushland interface area. the 2009 Victorian Bushfires Royal Commission (2010b). Since 2009, 224 km of improvements and 23 km of new This guideline supports the implementation of a systematic fuelbreaks have been established in the project area under state wide program of bushfire risk assessment for all roads this program. The combined length of fuelbreaks across for which it is responsible and ensures conformity with the Parks Victoria managed parks and reserves within the obligations of s.43 of the Country Fire Authority Act, 1958. It project area totals 247 km and this network is slashed or considers the first four of the above five CFA Roadside Fire maintained annually. Management Guideline objectives. VicRoads has assessed roads for objectives 1 and 2 above, 4.5 Roadside fuel management in order to meet requirements under s.43 of the Country Fire Authority Act 1958 and actively participates in wider Roadside vegetation can make an important contribution fire management planning in relation to objectives 3 and 4 to the biodiversity and conservation of native flora and where it involves the VicRoads road network. fauna, however vegetation on roadsides can also contribute to the spread of large fires. The 2009 Victorian Bushfires The output of the VicRoads risk assessment is a prioritised Royal Commission recognised the need to strike a balance list of mapped roads classified into three groups according between the complex and competing objectives of reducing to the level of bushfire risk and is housed within the Victorian bushfire risk and maintaining important environmental Fire Risk Register. VicRoads manages 340 km of roads values. It also recognised the complexity of the current within the Dandenongs project area and has rated its roads regulatory framework governing road management and as high (55 km), moderate (68 km) and low (217 km) risk roadside clearing. respectively (see figure 8) and note that where VicRoads manage a dual lane road, e.g. Princes Freeway, it counts the Roadside maintenance undertaken by the six key road length in both directions). management authorities within the Dandenong Ranges landscape involves slashing a combined hundreds of High risk roads are ‘permanently’ treated roads managed kilometres of roadsides each year. As public authorities, to the current VicRoads maintenance standards specified in VicRoads and LGAs have the following statutory obligations maintenance contracts plus identified annual fire mitigation under s.43(1) of the Country Fire Authority Act, 1958: treatments and removal of hazardous trees or limbs that could fall on a road in high wind events plus removal of “In the country area of Victoria it is the duty of every all trees within the fall line of the road (VicRoads, 2013). municipality and public authority to take all practicable steps Other treatments include planning, education and traffic (including burning) to prevent the occurrence of fires on, and management during and after bushfire. minimise the danger of the spread of fires on or from: (a) any land vested in it or under its control or management; and (b) In accordance with their Roadside Asset Management any road under its care and management.” Guideline (in VicRoads, 2013), VicRoads fire management activities must be included in Municipal Fire Management DEPI is responsible for the management of roads on public Plans and approved by VicRoads processes. land including National Parks. The Country Fire Authority Act 1958 s.43(1) does not apply to these roads. DEPI has VicRoads Road Network and Risk Ratings in the

14 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Dandenong Ranges Landscape

Figure 7: VicRoads Road Network in the Dandenong Ranges landscape, and the associated road bushfire risk ratings

4.6 Rail corridors 4.7 Horticulture & Grazing Rail Authorities are responsible for meeting the obligations The majority of grazing is undertaken on various private of s.43 of the Country Fire Authority Act, 1958 along all rail land parcels throughout the region. Although this grazing is reserves. In the Dandenong Ranges landscape there are not explicitly strategic in nature it does form a component two rail corridors: Puffing Billy Railway (23.9 kilometres in of fuel management. Limited grazing of public land occurs length) and the Belgrave Line (6.6 kilometres in length). within the region but this is generally restricted by licence to cleared areas within certain crown land reserves. In the past, there have been a high number of ignitions within suburban rail reserves, and generally these have been There are significant areas of private land within the contained within the reserve. Dandenong Ranges that are currently used for horticultural purposes, including around Silvan and Gembrook. This Department of Transport, Planning and Local Infrastructure type of land use keeps fuel loads at low levels and in some has commissioned the development of a basic fire risk instances assists in protection of the community. assessment guideline to facilitate a systematic approach to fire risk assessment along rail corridors. The guideline focuses on two objectives, managing both risk of ignition and risk of spread, of a fire, within rail reserves. It is designed to assist Rail Authorities to prioritise bushfire management treatments.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 15 4.8 Electric Line Clearance In these areas, responsibility for electric line clearance shifts from the distributor to the public land manager, i.e. the LGA In the Dandenong Ranges landscape there are two or public land management agencies such as Parks Victoria electricity ‘distribution’ businesses (or ‘distributors’). They or DEPI. are SP AusNet, which owns and operates power lines from the outer eastern suburbs of Melbourne across the The Electrical Safety Act, 1998 also specifies that VicRoads eastern half of the state, and United Energy which owns is responsible for vegetation management of plantation and operates power lines in the eastern and south eastern trees associated with its roads and public transport (train) suburbs including the Mornington Peninsula. companies are responsible for maintaining clearance space between any vegetation and their assets. SP AusNet also owns and operates the two electricity transmission assets within the Dandenong Ranges Electricity distribution businesses currently identify hazard landscape. These are the Hazelwood-South Morang trees outside the clearance space which pose a risk to the transmission line and the Yallourn-Rowville transmission line. line and require notification to the land owner before the The sections of these lines that fall within the project area trees are cut and the risk is mitigated. total 66.6 km in length (21.2 km and 45.4 km respectively). An amendment of the Electricity Safety Act, 1998 (Section A 7.1 km section of the Yallourn-Rowville transmission 86B) was made recently in 2010 relating to hazardous trees. line has been identified as a secondary (‘road’) control line The amendment requires LGAs to, within their Municipal (see section Strategic Road Network, Control Lines and Fire Prevention Plan, “specify procedures for identification of Fuelbreaks, under Future Fuel Treatment Options). hazard trees and procedures for notification of responsible Managing vegetation clearances around power lines is persons of hazard trees for which they are responsible” prescribed in the Electrical Safety (Electrical Line Clearance) The Electricity Safety Act, 1998 also states that the local Regulations, 2010. The regulations prescribe a code of Municipal Fire Management Planning Committee now needs practice with which the responsible person must comply. to include procedures for identifying hazard trees in areas The default position under the Electrical Safety Act, 1998 of high bushfire risk in the prevention section of the plan is that distribution companies are the responsible person, with the intent of having these risks addressed. Municipal irrespective of the land tenure on which the trees and lines Fire Prevention Officers will need to liaise with the electricity are situated. Exceptions apply for private lines, where distribution businesses to obtain list of identified hazard responsibility rests with the land owner or manager. trees. This default position changes when there is a “declared area” within the meaning of the Electrical Safety Act, 1998.

16 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 5. HOW EFFECTIVE ARE OUR CURRENT TREATMENTS?

To ensure that fuel management strategies and treatments undertake modelling for burning treatments, therefore the are continually improved over time, it is important to following section is based on how burning changes the monitor and evaluate if they are effective in reducing the residual risk on both Public and Private land. fuel hazard and the level of bushfire risk. In other words, do they contribute to achieving the objectives of protecting life, 5.1 Measuring effectiveness using property and other community infrastructure and values? modelled residual risk As discussed in this report, most of the fuel management methods used in the Dandenong Ranges are localised and The residual risk of bushfires to life and property in the require assessment using tools such as House Ignition Dandenong Ranges will fluctuate with availability and Likelihood Index (Tolhurst’s risk assessment model), on a accumulation of fuel which is influenced by fire events, both house-by-house or fuelbreak-by-fuelbreak basis. A range of planned and unplanned. The modelled residual risk profile tools and methods are currently being developed to assess for the Dandenong Ranges landscape (Figure 8) shows: the effectiveness of these localised treatments, and assess 1. The maximum modelled residual risk for the landscape bushfire risk in a systematic way across the landscape. (the worst case fuel hazard scenario) – set at the 100% Many methods are best measured or considered by the benchmark benefit they provide for fire suppression activities. For 2. The modelled residual risk after the Ash Wednesday fires example, a fuel break that provides clear access to a in 1983 bushfire and safe control lines to work from. 3. The modelled residual risk after the Ferny Creek fire in Phoenix Rapidfire modelling was used to prepare the report 1997 Dandenong Ranges Landscape Risk Project: Understanding Hazard and Risk (DEPI, 2013a). Phoenix allows us to 4. The modelled residual risk after the Black Saturday model the residual risk of bushfire that remains after fuel fires in 2009 (which did not have a large impact on the treatment. This provides a measure of how much treatments landscape) can reduce bushfire risk to assets, compared with if no 5. The modelled residual risk in 2012 treatment was taken at all. It can be used to understand the effectiveness of planned burning on public land in reducing 6. The draft modelled residual risk in 2013 (based on the bushfire risk to life and property. . A full description of this unvalidated fire history for 2012/13) modelling process, and the associated assumptions and Fuel treatment scenarios can be modelled and the results limitations, is provided in Dandenong Ranges Landscape shown as a change in residual risk from the worst case Risk Project: Understanding Hazard and Risk (DEPI, 2013a). scenario. While all different treatments will provide a change to the residual risk, currently we only have the capacity to

Residual RIsk in the Dandenong Ranges

Figure 8: Modelled residual risk in the Dandenong Ranges landscape

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 17 5.2 Scenario Testing: treatment and residual risk could be reduced to near 15%. If moderately treatable fuels were also able to be treated, the minimum tenure modelling residual risk we could achieve through fuel management The effectiveness of fuel treatment strategy options in on public land only is just under 75%, but on all tenures it reducing bushfire risk can be evaluated and the results is between 0 and 5%. The remaining residual risk reflects shown as a change in residual risk from the worst case potential property impacts that are not related to treatable scenario. public or private land, most likely from grassfires that impact properties through fireline intensity from grassfire For the purposes of demonstrating the limitations of flames. This risk can only be managed through alternative reducing bushfire risk through planned burning, two strategies, such as evacuations and refuges. See section hypothetical scenarios were created: (1) where all treatable 4.1.1 of this report for information about Treatability. public land was fuel-reduced at once and (2) where all treatable land on both private property and public land was Overall it appears that to successfully reduce impacts fuel reduced at once. The grid of fires was re-run over the to properties in the Dandenong Ranges landscape, landscape to see the difference to how major bushfires fuel management strategies that integrate private and might spread and impact properties. The results of this public land fuel hazard and a range of non-fuel treatment modelling is shown in Figure 9. strategies, would be most effective. The light green bar in Figure 9 shows that 80% is the It is important to note that these are purely theoretical tests minimum residual risk that could be achieved by burning of the absolute limits. Actual contemporary burning regimes all highly treatable public land in the Dandenong Ranges would never reach these levels. landscape. The light red bar demonstrates that if all highly treatable private land were treated as well, the minimum

Figure 9: Residual risk profile and treatment and tenure modelling for the Dandenong Ranges landscape

18 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 5.3 Scenario Testing: Fire Management Scenario 3 represents vegetation with a fast fuel accumulation rate. Asset Protection Zones are burnt every Zoning year, Bushfire Moderation Zones are burnt every 2 years To understand whether the current fuel management and Landscape Management Zones are being burnt every 8 strategy for public land (captured in the Fire Management years. In each scenario, Prescribed Burning Exclusion Zones Zoning Scheme) is effective at reducing bushfire risk to life and non-treatable land was assumed to be burnt 80 years and property, three hypothetical scenarios were created ago. where all treatable areas in each Fire Management Zone are The results show that with the current Fire Management fuel reduced at once per zone. Currently, guidelines in Fire Zoning, the slow fuel accumulation scenario keeps the Protection Plans indicate how often burning should take residual risk at 100%, the moderate fuel accumulation place depending on the zoning type and fuel accumulation, scenario reduces the residual risk between 95 – 100% however as different vegetation types accumulate fuel at and the fast fuel accumulation scenario will reduce the different rates, we have produced scenarios that represent residual risk to below 95%. This result indicates that burning different assumptions on the fuel accumulation rates. All according to the current Fire Management Zones can only three scenarios assume only treatable land can be burnt. partly address the bushfire risk to life and property in the Scenario 1 represents vegetation with a slow fuel Dandenong Ranges landscape. Options for understanding accumulation rate. Asset Protection Zones are burnt every areas where the current Fire Management Zoning scheme 10 years, Bushfire Moderation Zones are burnt every 15 can be amended to more effectively reduce the risk are years and Landscape Management Zones are burnt every discussed in the Options to Improve Fuel Management in 33 years. the Dandenong Ranges to Mitigate Bushfire Hazard and Risk section of this report. As these scenarios are based on Scenario 2 represents vegetation with a moderate fuel a standard set of burning regimes, it is possible to achieve a accumulation rate. Asset Protection Zones are burnt every 5 higher or lower level of residual risk when the burning regime years, Bushfire Moderation Zones are burnt every 10 years is changed and burns selected individually. and Landscape Management Zones are burnt every 19 years.

Figure 10: Dandenong Ranges landscape residual risk profile and Fire Management Zoning modelling

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 19 5.4 Scenario Testing: Fire Operations Plan There may be an opportunity to target the public land planned burning program to areas which will more effectively To understand whether the current Fire Operations Plan reduce bushfire risk, however there will still be high residual for public land is effective at reducing bushfire risk, a risk to be managed through other strategies including hypothetical scenario was created where all areas planned planned burning or fuel reduction measures on private land, for fuel treatment in the FOP where fuel reduced. As shown as well as alternative stategies such as evacuations and in Figure 11, DEPI’s public land planned burning program refuges. as detailed in the Fire Operations Plan for 2012/13 – 2014/15, is predicted to slowly decrease bushfire risk in the Planned burning can contribute to safer communities but in landscape, but only to around 90%. There is no discernable isolation, it will not substantially reduce bushfire risk. difference in modelling between the highly treatable and It is notable that the Phoenix Rapidfire modelling does moderately treatable vegetation. not currently account for the contribution of other fuel This analysis suggests the current planned burning program reduction programs such as strategic fuel breaks in the will have some effect in reducing risk but is limited due to the reduction of risk. Whilst DEPI and Parks Victoria currently high proportion of forested area too wet to effectively burn burn approximately 3% of the Dandenong Ranges public under safe conditions (Ash forest), and the high proportion land per annum, they also slash a similar area. Given of fragmented, forested private land. the limited potential of planned burning this is a sensible complementary program to reduce risk.

Figure 11: Dandenong Ranges landscape residual risk profile and Fire Operations Plan (FOP) modelling. Draft FOP 2014 highly treatable data is currently unavailable.

5.5 Measuring effectiveness using overall was identified as containing extreme, very high or high fuel hazard (Figure 12). On the assumption that the Fire fuel hazard trigger levels Operations Plan to 2015 is able to be fully implemented, this Based on fuel accumulation models, overall fuel hazard figure is expected to halve to 26%, leaving approximately profiles can be created to provide a simple expression 272 ha in this Fire Management Zone above recommended of the public land fuel hazard in each Fire Management levels and available for planned burn nomination (Figure 13). Zone across the Dandenong Ranges. A methodology Over 1,040 ha is scheduled to be burned within Bushfire for conducting field overall fuel hazard assessments, and Moderation Zones in the landscape between 2012 and descriptions of the overall fuel hazard ratings can be found 2015, 902 ha of which was classified as having either in the Overall Fuel Hazard Assessment Guide, 4th Edition extreme or very high fuel hazard. This burning program (DSE, 2010). An overall fuel hazard analysis compares the will leave 678 ha or 25% of land in this zone containing fuel loads with the trigger levels for burning set out in the higher than recommended fuel levels and available for East Port Phillip Fire Protection Plan (DSE, 2003) in order to Fire Operations Plan nomination. Around 3,750 ha of land determine the area of land within desired overall fuel hazard within Landscape Management Zones is scheduled to be limits (Figure 12). Any land with an overall fuel hazard at a burnt in the landscape. Analysis suggests the current Fire level higher than is set out in the Fire Protection Plan are Operations Plan arrangements will bring the fuel hazard highlighted as an area where future efforts in burning will within this zone into the recommended limits, by reducing have the best effect. the area in this zone with extreme, very high or high fuel loads from 77% to 49%. In 2012, just over 52% of land classified as Asset Protection Zone within the Dandenong Ranges landscape

20 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Figure 12: Modelled overall fuel hazard (OFH) percentage by area per Fire Management Zone

Figure 13: Modelled overall fuel hazard (OFH) percentage by area per Fire Management Zone in 2015, after predicted implementation of the approved Fire Operations Plan

The scheduling of burns under the current Fire Operations Plan in the Dandenong Ranges is consistent with the present fuel management strategy set out in the Fire Protection Plans.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 21 6. OPTIONS TO IMPROVE FUEL MANAGEMENT IN THE DANDENONG RANGES

To mitigate bushfire risk, fuel management treatments must These Priority Risk Treatment areas are split into three have the following purposes: categories: 1. Limit the initial spread of ignitions · Areas where the highest impact ignitions are likely to start 2. Reduce the size and intensity of bushfires · Areas adjacent to towns with the highest modelled impact of bushfires. 3. Protect assets, life and property · Broader areas with high levels of modelled risk attributes 4. Support suppression activities. such as convection, ember density and fire intensity may The Phoenix Rapidfire modelling provided in Dandenong also be targeted in order to break up a fire run in the Ranges Landscape Bushfire Project: Understanding the landscape using effective fuel treatment. Hazard and Risk (DEPI, 2013a) establishes the areas that Collaboratively, DEPI, Parks Victoria, Melbourne Water, may be targeted for purposes 1-3 above, through the relevant LGAs and CFA have defined an initial draft of the ignition threat, bushfire spread frequency, bushfire dynamics Priority Risk Treatment Areas for the Dandenong Ranges and impact modelling. landscape (Figure 14). Using Phoenix Rapidfire and the Two options for fuel management are described below. The residual risk modelling methodology described earlier in this Priority Risk Treatment Areas treatment option addresses report, this initial draft was tested to understand whether purposes 1-3, and the strategic road network, control lines the bushfire risk in the landscape could be reduced under and fuelbreaks treatment option addresses purpose 4. this strategy. Figure 15 shows that by reducing the fuel in the draft Priority Risk Treatment Areas, the modelled 6.1 Priority Risk Treatment Areas residual risk can be reduced to around 45% and that when combined with the Fire Management Zoning using a Fast Now that we have an understanding of the fuel hazard and Fuel Accumulation burning rotation, the risk is reduced bushfire risk in the landscape, it is possible to identify Priority further to just above 40%. Risk Treatment Areas. It is expected that these draft Priority Risk Treatment Areas will The goal of the Priority Risk Treatment Areas is to find the be greatly modified by the agencies in the near future to fully key broad areas for undertaking fuel treatments across incorporate the latest modelling outputs and local information. public and private land that are efficient and effective in These Priority Risk Treatment Areas should be a major factor in terms of reducing risk. planning fuel management activities on public and private land, and be a key input into existing agency planning processes.

Figure 14: Priority Risk Treatment Areas in the Dandenong Ranges landscape, draft concept only

22 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Figure 15: Dandenong Ranges landscape residual risk profile and modelled residual risk for Priority Risk reatmentT Areas

6.2 Strategic Road Network, Control lines collected annual roadside and fuelbreak slashing spatial information and collated it in one mapping layer. This layer and Fuelbreaks is shown in Figure 16. This has resulted in a comprehensive As part of the Dandenong Ranges Landscape Bushfire view of the roadside slashing program within the Dandenong Project, the relevant road management authorities have Ranges landscape.

Figure 16: All agencies combined annual roadside and fuelbreak slashing program

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 23 This view provides the opportunity for road management fuel. Treatments should provide or utilise large fuel-modified authorities to examine possibilities of applying common areas abutting roads. standards and of conducting continuous cross tenure Fuel reduction burning on the road reserve may reduce works. As part of the Dandenong Ranges Landscape surface fuels to a minimum and negate a source of ignition. Bushfire Project, this data has been used by the road If located in or adjacent to fuels with spotting potential, road management authorities to collectively identify important reserve treatment should be accompanied by treatment of strategic roads for the purposes of bushfire control. the adjacent fuels to minimise the overall fuel hazard. Roads, combined with fuel modification, may provide an Together, the road management authorities have identified opportunity to limit the spread of large bushfires. Roadside a network of primary and secondary roads that assist fire fuel management makes for safer access and provides an agencies in the control of bushfires. The roads generally opportunity for establishment of fire control lines. form part of existing annual slashing programs. Identifying A control line is defined as a natural or constructed low-fuel strategic roads provides direction to agencies in developing area or a fire edge used to control a fire (Australasian Fire future standards and annual maintenance programs. It and Emergency Service Authorities Council, 2012). Roads also provides direction for setting priorities for roadside fuel may be useful as control lines if they are located in low reduction burning. A map of these roads is located in Figure fuel areas. Control lines are most effective when they are 17 and a breakdown of strategic road control lines by road adjacent to a substantial area of relatively non-combustible manager is located in Table 2.

Figure 17: Strategic network of primary and secondary roadside bushfire control lines

24 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management Authority Primary (km) Secondary (km) Total (km)

VicRoads 208.3 74.7 283.0

Yarra Ranges 5.0 30.6 68.8

Shire of Cardinia 12.9 36.7 49.6

Casey 9.6 6.2 15.7

Parks Victoria 9.6 9.6

SP AusNet 7.1 7.1

Melbourne Water 3.1 3.1

Grand Total 236.6 200.3 436.9

Table 2: Length of strategic control lines in the Dandenong Ranges landscape by road manager

As discussed in the Fuel Management Context section, since 2009 the Melbourne Fire and Emergency Program (MFEP) has upgraded and extended the existing fuelbreak network on public land in the Melbourne urban bushfire interface area. This area covers only the western part of the Dandenong Ranges landscape. Additional fuelbreak coverage in the eastern part of the Dandenong Ranges landscape, and linkages with the existing strategic fuelbreak network in Melbourne’s water catchments would be beneficial. In addition, opportunities should be sought to integrate fuelbreak works on private property and other areas of public land (such as areas managed by LGAs). To date, there is no measure to assess how effective existing control lines and fuelbreaks are at reducing risk. Options for analysis are being investigated.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 25 7. CONCLUSIONS

7.1 Key Findings 7. DEPI, Parks Victoria, VicRoads, Local Governments and Melbourne Water all undertake extensive roadside slashing 1. The fuel management treatments that are currently used and fuel break slashing in the landscape. Opportunities within the Dandenong Ranges landscape include planned exist to integrate these programs and establish common burning, bushfire hazard inspections, household vegetation standards. clearance, fuelbreaks, roadside fuel management, rail corridor clearing, grazing, electric line clearance. 8. Local Governments in the landscape are working to prioritise the enforcement of fuel hazard infringement notices 2. DEPI and Parks Victoria currently undertake an extensive to areas of high risk. planned burning program within the landscape which: · Is consistent with the recommendations of the Victorian 7.2 Key Recommendations Bushfire Royal Commission Recommendations on 1. All land managers including Parks Victoria, DEPI, planned burning (Victorian Bushfire Royal Commission, Melbourne Water should target areas for fuel treatment 2010b); where high impact ignitions, bushfire spread paths and · Prioritises areas for treatment by use of a zoning system; impact areas are predicted from modelling. · Is predicted to slowly decrease residual risk from 100% in 2. The draft Priority Risk Treatment Areas should be 2012, to around 90% after the planned implementation of further explored and tested. This should include analysis the Fire Operations Plan. of modelling outputs on both public and private land, and involve collaboration with internal DEPI and Parks Victoria 3. Modelling of current planned burning treatments staff, and the Country Fire Authority, Melbourne Water indicates: and Local Government through the Dandenong Ranges · Strategies that integrate the management of private land Landscape Bushfire Project. The Priority Risk Treatment fuel hazard along with public land fuel hazard would be Areas should inform a range of existing planning processes, most effective; purely focussing on public land planned including Regional Strategic Fire Management Plans and burning has limited effect; Municipal Fire Management Plans. · The best residual risk percentage that can be achieved by 3. The concept of Priority Risk Treatment Areas should be fuel management treatments across public land is 75%. tested with the community and their involvement sought in Theoretically the absolute minimum residual risk that could the establishment of these areas via community engagement be achieved by fuel management treatments across public processes at a Municipal Fire Management Planning level. and private land is almost 5%; 4. Road management and land management agencies · Fuel management strategies need to be complemented prioritise fuel management along roads identified as primary with alternative strategies such as for evacuations and and secondary control lines. These control lines are to refuges, to minimise the risk of bushfires to communities. be identified in future iterations of relevant Municipal Fire Management Plans. 4. Parks Victoria, via its Melbourne Fire and Emergency Program, has initiated and is maintaining an extensive 5. CFA and Local Government should focus household network of fuelbreaks in the Dandenong Ranges landscape. vegetation management and education programs in areas of highest modelled risk of impacts. 5. The CFA have invested significant resources to encourage and increase the amount and effectiveness of 6. As risk assessment methodologies and outputs become private property fuel reduction burning within the landscape. more sophisticated over time, fuel treatment options in the In particular: Dandenong Ranges landscape should be adapted to this new information. · Vegetation Management Officers are working to improve the capability of local CFA brigades and community 7. DEPI, Parks Victoria and CFA should work together members to undertake planned burning; with municipalities and Melbourne Water to promote an integrated approach to planning and implementing · Vegetation Management Officers are working closely with fuel management works across all land tenures and this DEPI and public land managers to effectively target areas be reflected in annual work schedules of Municipal Fire to burn to reduce risk. Management Plans. 6. There are some major impediments to an increased 8. The Priority Risk Treatment Areas are to be used to guide planned burning program on private land in particular fuel management on private land to ensure strategic and planning authorisation and liability. All shires in the landscape systematic treatment of private property which integrates are working to adopt a streamlined and efficient approval with public land treatment. process for planned burns.

26 Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 8. REFERENCES

Australasian Fire and Emergency Service Authorities Council Department of Sustainability and Environment 2010. Overall 2012. Bushfire Glossary, viewed July 2013. http://www. Fuel Hazard Assessment Guide, 4th Edition July 2010. afac.com.au/services/bushfire-glossary. The State of Victoria Department of Sustainability and Environment, Melbourne. Country Fire Authority undated. Roadside Fire Management Guidelines, viewed July 2013. http://www.cfa.vic.gov.au/ Department of Sustainability and Environment 2012. Code about/roadside-management. of Practice for Fire Management on Public Land. Victorian Government Department of Sustainability and Environment, Country Fire Authority Act 1958. Melbourne. Country Fire Authority 1983. The Major Fires Originating Electrical Safety Act, 1998 16th February, 1983. Country Fire Authority, Victoria. Electrical Safety (Electrical Line Clearance) Regulations, Country Fire Authority 2011. Making Victoria Fire Ready: 2010 10/30 Rule, 10/50 Rule and Fence Line Clearing, viewed July 2013. http://www.dse.vic.gov.au/land-management/ Fire Services Commissioner 2013. Dandenong Ranges land/native-vegetation-home/native-vegetation-local- Landscape Bushfire Project Guide 2013, viewed July 2013. government. http://www.firecommissioner.vic.gov.au/our-work/current- projects/landscape-planning-pilot/ Country Fire Authority and Department of Natural Resources and Environment undated. Review of significant fires – 20 Integrated Fire Management Planning undated. The and 21st January 1997 in Victoria. Melbourne. Integrated Fire Management Planning Framework, viewed August 2013, http://www.ifmp.vic.gov.au/images/stories/ CSIRO and Bureau of Meteorology 2012. State of the ifmp_framework.pdf Climate 2012. CSIRO State of the Climate 2012 http://www. csiro.au/Outcomes/Climate/Understanding/State-of-the- Premier of Victoria 2013. Bushfire Response, viewed July Climate-2012.aspx. Retrieved May 2013. 2013, http://www.premier.vic.gov.au/our-commitment/ bushfire-response.html CSIRO and Bureau of Meteorology 2013. Climate Change in Australia 2013: Australia’s future climate – Victoria State Fire Management Planning Committee, 2010. temperature change. www.climatechangeinaustralia.gov.au/ Integrated Fire Management Planning Guide, viewed August futureclimate.php. Retrieved May 2013. 2013, http://ifmp.vic.gov.au/images/stories/document_ archive/ifmp__planning_guide_2010.pdf Department of Environment and Primary Industries 2013a. Dandenong Ranges Bushfire Landscape Project, Victorian Bushfires Royal Commission 2010a. The 2009 Understanding Risk July 2013. East Central Bushfire Risk Victorian Bushfires Royal Commission Final Report: Volume Landscape Team, Department of Environment and Primary 1. Parliament of Victoria. Industries. Victorian Bushfires Royal Commission 2010b. The 2009 Department of Environment and Primary Industries 2013b. Victorian Bushfires Royal Commission Final Report: Volume East Central Bushfire Risk Landscape, Risk Profile Draft 2. Parliament of Victoria. July 2013. East Central Bushfire Risk Landscape Team, VicRoads 2013. Road Bushfire Risk Assessment Guideline Department of Environment and Primary Industries. and Risk Mapping Methodology, viewed July 2013. http:// Department of Environment and Primary Industries 2013c. www.vicroads.vic.gov.au/Home/Moreinfoandservices/ Bushfire History – Major Bushfires in Victoria, viewed RoadManagementAndDesign/StrategyAndPrograms/ July 2013. http://www.dse.vic.gov.au/fire-and-other- RoadBushfireRiskAssessmentGuideline.htm emergencies/major-bushfires-in-victoria. Department of Sustainability and Environment 2003. East Port Phillip Fire Protection Plan. Fire Management, Department of Sustainability and Environment, East Melbourne.

Dandenong Ranges Landscape Bushfire Project Managing the Hazard and Risk: Fuel Management 27 Customer Service Centre 136 186 www.depi.vic.gov.au