A significant Living change in the way government and Victorians with Fire manage fire is required to Victoria’s Bushfire meet future bushfire Strategy challenges Published by the Victorian Government Melbourne, June 2008 © The State of Victoria 2008 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 ISBN 978-1-74208-673-6 (print) ISBN 978-1-74208-674-3 (PDF) For more information contact the Department of Sustainability & Environment 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 Photos: of any kind or is wholly appropriate for your Front cover Main photo: dse; particular purposes and therefore disclaims all other photos clockwise from top left – liability for any error, loss or other consequence DSE; Hayden Briggs/State Aircraft Unit; which may arise from you relying on any Lauren Butterfield/DSE; DSE; Kathryn Little/DSE; information in this publication. Geoff Deacon/CFA; Rachel Dawkin/DSE; CFA. Accessibility this page: main photo – DSE; If you would like to receive this publication in an other photos left to right – Kathy Overton/ accessible format, such as large print or audio, DSE; DSE; DSE. please telephone 138 186, 1800 122 969 (TTY), or email [email protected] Except where noted, CFA photos courtesy of CFA This document is also available in PDF format on photo library and Keith Pakenham (CFA Image the Internet at www.dse.vic.gov.au Specialist). Ministers’ foreword

Minister Jennings Minister Cameron Fire is a natural part of our Victoria’s firefighting agencies environment that has shaped our are renowned as world leaders landscape through natural ignition in bushfire response.W ith a (lightning) and indigenous burning measurable increase in the practices for thousands of years. number and severity of bushfires Ironically, however, our success in over the last decade, it is vital that suppressing bushfires has led to we continue to build our response an unnatural build up of fuels and capabilities. deterioration in ecosystem health. To help protect communities, The combination of high fuel loads, drought and climate the first attack capabilities of our fire agencies are critical. change is driving a significant increase in bushfire activity. Having the right mix of aircraft and fit, skilled and Notable recent events include the 2003 Alpine, 2006 experienced firefighters spread across the state is crucial to Grampians and 2006/07 Great Divide fires. providing rapid first attack. Living with fire – Victoria’s Bushfire Strategy emphasises the Highly skilled well-equipped firefighting agencies are importance of preventative actions to meet future bushfire required to respond to bushfires as well as undertake challenges. The increased use of fire as a management tool, planned burning to reduce fuel loads. in particular, planned burning together with engagement Living with Fire will provide additional support to regional of communities in decision making, aims to reduce the and at risk communities, paid and volunteer firefighters to frequency and impact of the large, landscape-scale fires ensure we can safely meet future response and prevention experienced in Victoria over the last decade. challenges in an increasingly active bushfire environment. Bushfires will remain a part ofV ictoria’s summers. Resilient This Strategy will build the capacity of our firefighting communities however, are well informed, well prepared and agencies using shared equipment coordinated through best able to manage this threat. better integrated emergency management systems.

Living with fire is Victoria’s first comprehensive bushfire strategy.I t seeks to reduce the threat of bushfires while facilitating resilient communities and improved environmental outcomes. It will enable our bushfire agencies to be better prepared to meet future challenges in a time of climate change.

Gavin Jennings MLC Bob Cameron MP Minister for Environment, Climate Change Minister for Police and Emergency Services and Innovation

i Executive summary

This Strategy provides direction The last decade has seen a dramatic Burning will always be risky. It requires and a framework to: increase in the number, size and significant planning, risk management • Increase the area of Victoria’s severity of bushfires in Victoria. The and operational capability. public and private land treated major fire events of the 2003A lpine In addition considerable community with fire to reduce fuel loads, Fire, 2006 Grampians Fire and the awareness, acknowledgement maintain ecosystems and 2006/07 Great Divide fire are all and sharing of risk are required to manage future bushfire risk; evidence of increasing fire risk.S imilar undertake this activity. • Inform local communities trends are being experienced in engaged in bushfire planning, North America and Europe, including Understanding the risk and ecological preparedness, response and California (2007) and Greece (2007). needs of our environment will recovery; underpin the use of planned fire Bushfires are a vital part of our natural and the treatment of bushfires.A s • Optimise firefighting resources environment, driving regeneration available to undertake planned well as reducing bushfire risk to the and maintaining the health of species community, planned fire is important burning, response and recovery and ecosystems. The combination operations – supported by to sustain ecosystem health and of drought, climate change and resilience. Across the landscape a mix equipment and training; and unnaturally high fuel loads however, • Improve land use planning and of areas burnt with different severity, has created an unprecedented bushfire at different times of the year, and at adaptive management by fire risk. agencies to mitigate risk and different frequencies will provide a facilitate continuous learning. Victoria’s bushfire agencies are very patchiness that provides a healthy successful at first attack firefighting, diversity in our parks and forests while keeping most fires to small sizes and also reducing fuel loads. limiting their impact. An unintended To carry out the burning program consequence of this success is that at the scale necessary will require a large amounts of natural fire (lightning significant investment in trained and initiated fire) has been removed, experienced firefighters across the resulting in a build up of unnaturally Department of Sustainability and high fuel loads. Environment (DSE), its partner agencies To position Victoria to meet future and the Country Fire Authority (CFA). challenges and reduce the threat of This strategy will position Victoria’s bushfire a clear strategy is proposed. bushfire management agencies to A key focus of this strategy is an effectively manage risk in partnership increased planned burning effort in with the community with clear Victoria. direction under six themes.

ii Photos: background image – Glenn Rudolph/DSE; other photos from left to right – Nigel Peters/dse; Nigel Peters/dse; Nigel Peters/dse.

Strategic directions Managing the land with fire Workforce/volunteer capability Increase the planned burning Build and maintain a skilled, fit and effort based on ecological and risk experienced firefighting force to management objectives. This will deliver an increased planned burning require building firefighter capability program, meet rising response needs to resource an expanded planned and provide support to volunteers. burning program, including a Planning for protection landscape scale mosaic burning Provide the community and planners program on public land plus support with better risk management and for planned burning on private land. mitigation tools, including the Building community capacity acceleration of the implementation to live with fire of Integrated Fire Management Improve the community’s Planning. understanding of the role of fire in Risk and adaptive management the environment and increase shared Develop a more responsive approach responsibility for risk, prevention and to the management of bushfires preparedness for bushfire. based on continuous learning Enhanced response and recovery and improvement through the Continue to lead the way in fire development of interagency risk response while building on our modelling, statewide scenario recovery efforts. Including: planning and improved ecological • aircraft and rappel crews for rapid research and monitoring. and remote area response; • greater integration across agencies, including shared vehicles and the integrated Emergency Coordination Centre; • road and strategic fuelbreak networks for increased protection and safer working environment for firefighters; • seamless integration and support for recovery from bushfires.

Photos: clockwise from top left – DSE; Steve Grant/DSE; Larry Osachoff/dse; CFA. iii Contents

Ministers’ foreword i Executive summary ii Context 1 The way forward Managing the land with fire 8 Building community capacity to live with fire 12 Enhanced response & recovery capability 16 Workforce/volunteer capability 20 Planning for protection 24 Risk & adaptive management 28

iv Photos: from left to right – Mark Urquhart/dse; CFA. Context

Fire is a natural part Over the last century, major fire events, Historically, severe bushfire events, while of the Victorian including 1939 Black Friday, 1983 Ash relatively rare (less than 5% of recorded Wednesday, 2003 Alpine Fires and the fires), cause 95% of life and property environment recent 2006/07 Great Divide Fires have loss (Cheney 1976). The projected The Victorian environment is one of the occurred during extended periods of increases in severe fire conditions will most bushfire prone areas in the world. drought. lead to a likely rise in the occurrence of damaging bushfires.T his means that a Natural ignition (lightning) and Drought compounded by indigenous burning practices have minor increase in occurrence will have shaped our ecosystems over tens of climate change major consequences. thousands of years. Many ecosystems Victoria historically experiences a ten to The frequency and impact of fire are reliant on bushfire to regenerate fifteen year dry-wet cycle. T he severity related events is also predicted to rise. and maintain health. and longevity of the current drought, For example, the combination of more however, with record low rainfall and Natural fire regimes vary widely across localised storms and increased flash high temperatures, is unprecedented. the State. Drier areas, such as the Mallee runoff from burnt catchments is likely and coastal heath may burn each Climate change will mean longer, more to increase flood events, as experienced year, while wetter forests, including intense drought periods, lower average in Gippsland in June 2007. the Central Highlands and the Otway rainfall and increased temperatures. Climate Change is projected to Ranges burn less frequently and often The number of Very High or Extreme directly affect ecosystem services and only following periods of extended Forest Fire Danger days are projected biological productivity (e.g. water, drought. to increase by up to 20% by 2020 and timber production, biodiversity) which, up to 60% by 2050 (Hennessy et al., Successful first attack and suppression if coupled with severe bushfire events, 2006). Storm events are also projected efforts have removed much of the will have significant detrimental to increase in severity. This is significant natural fire from theV ictorian landscape impacts. as lightning is a major source of ignition and have unnaturally increased the for bushfires. length of time between fire episodes across large tracts of forested areas. Figure 1: Number and severity of bushfires 5000 As a consequence fuel loads are at an 06/07 unprecedented high level (see figure 4). 4500 Great Divide 1.2m ha burnt, most fires on record – 1047 The number and severity 68/69 02/03 4000 Numerous fires in Central and Western Districts Alpine fire of bushfires has increased 0.32m ha burnt, 22 lives 1.3m ha burnt 3500 lost – 17 in Lara fire, The last decade has seen a significant 29,000 ha public land burnt and measurable increase in the 3000 number, intensity and area burnt

by bushfires. In 2006/07 a record 2500 number of fires occurred.T here were 1,083 ignitions on public land alone 2000 – 45% above the thirty year average. 1500 In excess of 1 million hectares were 82/83 1939 Ash Wednesday 47 lives and over burnt. Projections suggest that this will 1000 1939 Black Friday Fires at least 1.5m ha burnt, 2500 homes and continue to escalate. 71 lives lost, 659 homes buildings lost, destroyed 1.3m ha burnt 500 statewide The 2002/03 season was of a similar dangers for each year) Season Severity (sum of daily fire Fire Annual Fire Season Severity scale. Rolling Three year Average Severity 0 There is a direct link between drought, 1940 1950 1960 1970 1980 1990 2000 2010 Year increased fire activity and more intense fire behaviour. There is a clear upward trend in the number and severity of bushfires over the last seventy years

Photos: clockwise from top left – Steve Grant/DSE; cfa; cfa. 1 si m on o’dwyer, the age

Bushfires threaten water Resilient communities The most significant long-term catchments, settlements, Bushfires have immediate and impact of fire in water catchments local economies and long-term psychological impacts on is a dramatic drop in yield. In prime individuals and communities, including wet forests, such as Melbourne’s biodiversity anxiety, fatigue and financial stress. catchments, water yield falls by as Victoria has over 7 million hectares These impacts can compound existing much as 50% for up to thirty years, of largely forested public land, stresses from drought and flood as regenerating vegetation requires approximately 50% of which is events, which have particular impact far more water than a mature forest National Park. on volunteerism. (Lane, 2007). Vulnerable settlements Agriculture, forestry, tourism and The 2003 Alpine Fires burnt over Loss of life and settlements from associated service industries are 25% of the Murray River’s Victorian bushfires is well documented in particularly vulnerable. catchment which is estimated to have Victoria’s history. The Ash Wednesday The 2006 Grampians fire resulted in an resulted in at least a 10% reduction in fires of 1983 resulted in 47 deaths estimated $100 million downturn in flow. and the loss of over 2,500 houses and the local economy. Nearly 60% of the The Thompson Catchment provides up buildings. region’s businesses derive income from to 60% of Melbourne’s water supply The “sea change/tree change” trend tourism associated with the Grampians and was directly threatened during to semi-rural lifestyles and ongoing National Park. the 2006/07 Great Divide fires.I t is development of the urban rural fringe Water catchments estimated that burning this catchment over recent decades, means more lives Melbourne’s water storage levels have would decrease water yields by over and assets are at risk from bushfires. been at record lows for some years. 30% for at least 30 years, requiring The value of assets has also increased Water storage for other settlements over 100 years to recover. Water dramatically with rising property values including Geelong are even more critical. quality would also be impacted. and investment. Fires in catchment areas have both The 2003 firestorm that devastated immediate and long-term impacts on Canberra inflicted significant damage water supply. to Canberra’s catchments requiring substantial investment – $3.5 million Short-term impacts include: on catchment repair and stabilisation • Poor water quality needing plus $50 million upgrades to water significant additional treatment treatment facilities to deal with the costs; higher sediment loads. • Increased erosion resulting in increased sediment loads; and Infrastructure • Poor river health. Much of the State’s critical infrastructure is located in remote and forested areas including road and rail networks, telecommunications, gas pipelines and power lines. During the 2006/07 Great Divide fires, smoke from the Tatong Fire shorted major high voltage power lines resulting in loss of power and a “brown out” in Melbourne and The Thompson catchment under across much of Victoria. The estimated threat from fire economic impact / loss of this one day (Great Divide Fire 2006/07) event was $500 million.

2 Photos: clockwise from top left – simon o’dwyer, the age; Nigel Peters/DSE; Nigel Peters/DSE. Forest resources have long-term impacts on timber ecosystems, severe bushfires can have Bushfires have had major harvesting volumes. Forest areas also devastating impacts on biodiversity. consequences for forest resource play an increasingly important role as Higher fuel loads increase the intensity industries. The 2003 Alpine and sinks for carbon sequestration. of bushfire, leading to greater damage 2006/07 Great Divide fires burnt a Biodiversity over much wider areas. significant proportion ofV ictoria’s While fire is vital for maintaining native forest timber resource and may Large and severe bushfires that burn the health and regeneration of our over 1 million hectares with large areas of high intensity have immediate and We are not alone: Interstate and international trends devastating impacts on biodiversity, Similar trends are evident in other parts of Australia – notably in South with few refuges left for recovery of Australia and the ACT. The 2005 Wangary Fire on the Eyre Peninsula in South both plants and animals. Australia resulted in nine deaths and 93 houses destroyed with an estimated Species and ecosystems have evolved $100 million loss to the economy. to adapt to specific fire regimes Significant increases in the incidence of fires are being experienced globally. (season, frequency and intensity). Since 1983, South East Asia has experienced 3 landscape-scale fire events in Altered, typically more infrequent excess of 3 million hectares each. The most recent in 1997/98 consumed 5.2 but intense fire regimes, will have million hectares of rainforest in Indonesia, resulting in an estimated $US10 significant consequences on ecological billion loss. communities and individual species. The 2007 fire season inG reece was of a severity and loss never before seen, with over 3,000 fires for the season.I n particular, the fires of lateA ugust had devastating impacts with 190 fires burning 200,000 hectares with 64 deaths and over 2,000 houses and buildings destroyed. The 2007 fires in southern California were the latest in a sequence of unprecedented disasters with 9 deaths, 1,500 houses destroyed, over 1 million people evacuated (the largest in US history) and over $US1 billion loss.

Tatong Fire threatening Planned burning in Yosemite National Park, USA Victoria’s power supply (Great Divide Fire 2006/07)

Photos: clockwise from top left – Nigel Peters/DSE; Brian Robertson/CFA; Ion Worrell/PV; CFA; CFA; Adrian Bloch/DSE. 3 Climate change, bushfires The length of the cycle and amount of may also affect the distribution and and the carbon cycle carbon in the system varies depending productivity of forest types and their upon the forest type, management carbon sequestering capacities. Carbon, in particular increasing levels regime and frequency of fire. A key finding fromA ustralia’s State of of atmospheric carbon dioxide (CO2), is a key driver of climate change. The In a balanced system, fires naturally the Forests Report (2008) identified carbon cycle describes the natural consume the fine fuels (litter, shrub that the greenhouse gasses released processes of carbon release and and bark layers), which contain only from the extensive bushfires during capture (sequestration). a small percentage of the carbon, the reporting are expected to be offset leaving the larger fuels (trees and by new forest growth since total native It is now understood that human logs). Regrowth over time replaces forest carbon stocks have changed activities have resulted in the this material, sequestering carbon and little over the long-term. long-term carbon cycle becoming maintaining the carbon balance. Recent research indicates that planned imbalanced, with more CO2 released (land clearance and, in particular, the Increased severity of bushfire seasons burns, which are generally less intense, burning of fossil fuels) than is stored threatens to further imbalance the release significantly less CO2 over time or sequestered. In the short–medium carbon cycle by releasing more carbon than severe bushfire events. term natural carbon storage generally than has taken place historically. These Cultural heritage occurs through plant growth. high intensity bushfires consume increased levels of stored carbon (soil, Indigenous people in Victoria have The forest/fire carbon cycle trees and logs), releasing more CO2 for generations managed the land, The natural forest carbon cycle is into the atmosphere and requiring coast and sea. Their management a balanced system over time with a longer time period of regrowth has created a rich cultural heritage. decomposition and fire releasing to restore the carbon balance. While much of their generational carbon into the atmosphere and forest Inappropriate fire regimes, especially heritage has been lost since European regeneration and growth capturing or an increased frequency of severe fires, settlement, substantial and valuable sequestering it. cultural heritage remains. Figure 2: Fire and the carbon cycle The protection of cultural heritage Forest carbon cycle values is increasingly being incorporated into fire management, with cultural heritage protection under Atmospheric CO2 planned and emergency conditions improving over recent years. Fire agencies will work in partnership with Natural Growth Indigenous people and Traditional ageing and Capture and decomposition Release regeneration Owners of Victoria to ensure cultural The global (Sequestration) heritage values are being considered carbon cycle as part of our planning during all fire management activities.

COMBUSTION RESPIRATION PHOTOSYNTHESIS

Stored Carbon

DEFORESTATION

4 Photos: clockwise from top left – Angelo Keratianos/PV; CFA; CFA. Bushfire agencies are very areas across Victoria is a significant successful at putting out challenge. bushfires Victoria’s bushfire agencies are also Victoria’s bushfire agencies are among the world’s best in raising the regarded as world leaders in bushfire level of awareness about fire and in response and community engagement. providing education and engagement programs to communities at risk. There More than 80% of Victorian fires are is a high level of community acceptance contained as small fires (less than five that a tanker will not be available to hectares). The remaining 20% of fires defend every property. The community’s result in 90% of areas burnt annually. understanding of risk and shared Aggressive first attack prevents fires responsibility has grown considerably in from developing into large fires. recent decades following the lessons of Meeting this objective in remote Ash Wednesday.

Figure 3: History of fire in Victoria

Natural fire Pre-organisational Organisational Protection Landscape scale fire Future fire Phase • Australia separates from Gondwana and north • 1983 and 1985 fires • More drought • Drying and genesis • Forestry, fire, rare and • More fires • 2003 and 2006/07 of the Eucalyptus • 1939 and 1944 Fires; threatened species • More assets at risk landscape scale fires (30m years ago) • Stretton and other concerns • Higher values • Settlement and • COAG and Victorian • Natural lightning fires inquiries; • Linton/Moggs Creek • Greater community development • Rural settlement & • Fire (edge protection) bushfire inquiries demand and Drivers (at least 200,000 • Climate change – years ago) development • Sea change/tree engagement decadal drought • Aboriginal settlement change • More workforce and fire use wellbeing pressure. (40,000 years ago).

• Managing the land • Increased cooperation • Declining burn size with Fire • Multi-agency • Increasing quality • Building community • Forest and fire science capability exceeded • Early (independent assurance– input focus capacity to live with initiated • Greater community • Drought and fire brigades) • Increased fuel fire • Coordinated approach involvement prone and adapted • Limited structure and • Diminished habitat • Enhanced response & to suppression • Integrated planning Outcomes landscape organisation • Extended initial attack recovery capability • Australia leader in initiated • Forests and CFA Acts success • Workforce/volunteer burning • Role of fire in the • Leaders in community capability environment preparedness • Planning for protection re-considered • Risk and adaptive management

Pre-European Pre and early 1900s Mid 1900s Late 1900s Early 2000 Future fire The characteristics of bushfires and our organisational capacity to manage and respond has changed significantly over time

Photos: left to right – CFA; Steve Grant/dse; Glenn Rudolph/dse. 5 The cost of suppression accreditation for fire duties. This The performance of The 2006/07 Great Divide fire ran workforce is supplemented by up to bushfire agencies is for 69 days and burnt over 1 million 700 seasonal Project Firefighters P( FF) regularly reviewed during the bushfire season. hectares. Suppression of this fire cost Victoria’s bushfire agencies have $170 million on top of regular budget CFA is responsible for fire on private benefited from regular independent allocations. Additional sums were land in rural areas, the urban/ reviews, internal assessments and made available for recovery. rural fringe and much of greater international benchmarking. In the USA, both the costs and the metropolitan Melbourne. In addition to bushfire, responsibilities include Most recently, the Environment and area burnt have more than doubled Natural Resource Committee (ENRC) over the past decade. The average structural (building) fires and a range of broader emergency responses. undertook an inquiry and tabled a area burnt nationally now exceeds report into the Impact of Public Land 3 million hectares. Annual fire CFA consists of approximately 58,000 volunteers (of whom up to one third Management Practices on Bushfires suppression costs have exceeded $US1 in Victoria to Parliament in June billion since 2000. are operational firefighters), supported by paid firefighters and other staff. 2008. This Strategy is a key part of Who fights fires government’s response to the ENRC The Metropolitan Fire and inquiry. Victoria has three firefighting agencies. Emergency Services Board (MFB) A measurable improvement in DSE is responsible for fire on public is responsible for the Metropolitan performance over time is well land (1/3 of the State). DSE, along Fire District with some, but limited, documented. with its partner organisations, involvement in bushfire. Parks Victoria, Department of DSE and CFA personnel work closely Primary Industries, Melbourne to ensure an integrated and seamless Water, Department of Planning approach to fire response and and Community Development and management across public and private VicForests, form the Networked land, sharing resources and jointly Emergency Organisation (NEO) managing incidents when required. with over 2,500 staff with specialist

6 Photos: clockwise from top left – DSE; Steve Grant/dse; CFA; cfa; dse; Bryan Rees/State Aircraft Unit;. Shared responsibility for risk Appropriate risk management requires the involvement and acceptance of all stakeholders, including the community, industry and government. A key Government role is to provide leadership and advice to the community and industry. Well informed individuals and businesses are often best placed to assess and manage their own exposure to risk. Managing bushfire risks is a clear example of the need for shared responsibility between government, individuals and industry. Government undertakes bushfire prevention measures (e.g. planned burning), land use planning and emergency response (fire suppression). Home and business owners in bushfire prone areas need to take the necessary steps to prepare their property. Government, individuals and industry working together to share responsibility for bushfire risk will achieve the most desirable outcome. Smoke from bushfires in southeastern Australia, December 2006 The strategic direction • Building community capacity to • Workforce and volunteer required to reduce risk, live with fire – so that Victorians capability – retention of firefighter raise awareness and understand and support the and specialist bushfire expertise imperatives for preventative activities across Victoria, succession planning improve protection and risks associated with fire and a robust model to support the A bushfire strategy forV ictoria requires management and share responsibility current NEO arrangements and CFA a long-term vision with clear directions for bushfire preparedness; volunteers; for the next four years. • Enhanced response and recovery • Planning for protection – Six key themes requiring attention have capability – improved first attack, improving how and where been identified, including: integrated emergency coordination development occurs and better • Managing the land with fire – and response, adoption of latest integration of conservation, a significant increase in planned technologies and support for production and risk reduction into burning effort to reduce dangerous recovery; land management; and unnaturally high fuel loads and • Risk and adaptive management promote ecosystem health and – understanding and adapting to resilience; future bushfire risks and challenges.

Photos: Clockwise from top left – David Boyle/dpi; DSE; CFA; NASA/getty images news. 7 Managing the land with fire

Fire is the only broad scale Prior to European settlement fire Strategic direction management tool available to deliver continuously reset and regenerated the Increase the planned burning protection, biodiversity and ecosystem mix of species and habitat structures effort based on ecological and services needs. such as understorey vegetation, logs on risk management objectives. This Fire reduces fuel hazard to levels that the ground and trees with hollows, to will require building firefighter provide firefighters with a reasonable provide diversity across the landscape. capability to resource an expanded chance of containing unwanted This diversity enabled many of our planned burning program, bushfires while they are still small. ecosystems to evolve and absorb including a landscape scale mosaic Planned burns break up the landscape disturbance, while still retaining their burning program on public land sufficiently to reduce the impact of basic form and function over time. plus support for planned burning larger fires when they occur, while In some areas, Aborigines used fire on private land. also promoting healthy and resilient to promote food resources and ecosystems. significantly altered the timing, frequency, scale and intensity of fire The natural role of fire in (fire regimes), thus changing the our environment species composition and structure of Victoria is one of the most fire prone some ecosystems. Knowledge of the areas in the world. Over tens of extent of Aboriginal burning practices thousands of years, fire, together with and the impact on the landscape climate, topography and vegetation of southern Australia is, however, type strongly influenced the nature and fragmentary and assumptions about extent of the different forest, scrub and the impact remain speculative. grassland ecosystems seen by the first Europeans.

Figure 4: Overall forest fuel hazard on public land (Feb 2007)

Alpine Fire 2003/2004

Grampians Fire 2006 Great Divide Fire 2006/2007

8 Photos: background image – DSE; other photos from left to right – cfa; dse. Early European management made the widespread use of fire as a decades have remained unburnt for With increasing pastoralism during management tool more difficult. over 50 years. the 1800s, deliberate burning of thick Fire protection plans introduced in the The occurrence of infrequent, large scrub by Aborigines was often violently late 1980s focused more on burning and severe bushfires rather than discouraged due to the concerns of along the forest edge (areas settled in more frequent, smaller, dispersed and settlers about loss of fences and grass. and around forest margins). Since then less intense fires has resulted in an This led to thicker understorey growth the number of homes and other assets imbalance of fire and less diversity in parts of the State. along the urban edge have increased across habitats and landscapes. Following the 1939 Black Friday fires, and the use of fire has become even This imbalance increases the risk of greater efforts were made to prevent more contentious, complex and large fires and also the possibility that bushfires and use fire for protection difficult. some ecosystems will permanently and production purposes. While this Successful suppression and change to a different composition lacked a strong scientific basis, it was unnaturally high fuel levels or ‘state’ that is less diverse and less considered good for the bush – smoke In recent decades a strong fire productive. and fire may have been a nuisance, but suppression culture, improved they were a part of life. Reduced ecosystem resilience organisational skills and greater aerial In the face of significant change, Over time, the use of fire for land technology have enabled most fires to caused by drought and increased fire management and fuel reduction be controlled while small. activity, it is essential that our parks became increasingly unpopular. In With the exception of recent landscape and forests have the natural diversity the face of an increasingly risk averse scale fires, significant natural fire to maintain their health, species mix, society and growing public concern has been largely removed from the structure, function and supply of about the environmental effects of fire, landscape, resulting in unnaturally high ecosystem services, such as water and the lack of scientific evidence about fuel loads. Some parts of the state that carbon storage. Ecosystems that retain ecologically sustainable fire regimes once burnt naturally every one or two the capacity to adapt to and absorb change will be more resilient. Climate change adds a further layer of Figure 5: Fire danger and fuel hazard levels uncertainty and complexity to this issue, Public land burnt per annum increasing the probability that some Worse Current levels Fuel loads would return to pre ecosystems will become increasingly Fuel Hazard 2003 levels within 15 years. The Levels risk of landscape scale fires stressed and may disappear. would not be decreased. Current burning programs are Challenges aimed at this level. 1983 Ash Wednesday Fires 2003 Alpine Fires Increased burning Fire as a land management tool A targeted and strategic While Victoria’s bushfire agencies lead burning program designed to 2006/2007 Great Divide Fires protect communities and assets the world in bushfire management, and create fuel breaks in large Drought & forest areas. The bushfire risk there is a need to significantly adapt Current Fire Danger may be decreased. and change the overall approach Significant increase A natural mosaic pattern will to meet unprecedented challenges achieve a long term reduction anticipated in the future. A continued in landscape scale fire risk. This Trend line is a stylized interpretation of program would be very focus on excluding and minimising the fire climate increases forecast by resource intensive and possibly Bushfire CRC, BOM and CSIRO MAR, beyond ecosystem capacity. September 2007 (Lucas 2007). amount of fire in the landscape will only increase the frequency and impact of severe fires. Better Fire is the strongest tool available to -50 Present +50 reduce the threat of severe bushfires

Photos: dse. 9

to life, property and the environment. Table 1: Fire in the environment Planned burning reduces fuel loads and increases the likelihood of successful Fire as a management tool Severe bushfires suppression efforts. Definition Includes planned fires and Includes fires caused by arson, bushfires that meet specific land escapes or natural ignition that Many of our ecosystems also require management objectives (desirable don’t meet land management fire to maintain their health and protection and/or ecosystem objectives. resilience. Fire regimes need to be benefits). based on the latest knowledge and Protection Reduces risks to life, property and Increase risk to or destroy life, tailored to meet a range of land of life and public assets when a severe bushfire property or public assets. property does occur. management objectives, taking into account the climate, terrain, flora and Ecosystem Maintains or improves ecosystem Reduces ecosystem health and fauna and the scale and patchiness of resilience health and resilience, based on a resilience due to inappropriate particular ecosystem’s requirements fire frequency, intensity, scale ecosystems. of fire frequency, intensity, scale and patchiness for a particular and patchiness. ecosystem. The current scale of planned burning is insufficient to deliver desirable Provision of Protects or reduces risk to essential Threaten significant damage to ecosystem public and private services such as essential public and private services protection and ecosystem service needs services and water supply, timber, soil, power such as water supply, timber, soil, (see Figure 5). Importantly, there is public assets and tourism assets. power and tourism assets. also an opportunity to use bushfires, which are burning under appropriate conditions, to achieve desired land and fire management outcomes. Fire management in the future Science and history suggest that we need to rethink our approach to managing fire in the landscape in order to redress the current imbalance. This is necessary to restore and maintain diversity in ecosystems, while better protecting human life and property. Future fire management will aim to provide the right mix of fire (at appropriate frequencies, seasons, intensities and scales) across both public and private land to sustain resilient ecosystems, communities and industries and reduce the incidence of large scale severe fire events (see Table 1). An increase in investment in Fire Ecology Frameworks has provided land and fire management agencies with a better understanding of the broad fire needs of major ecosystems. Recent landscape scale mosaic burns have successfully taken place in East Gippsland and North East Victoria. Smoke over Melbourne, April 2008

10 Photos: clockwise from top left – DSE; DSEpaul rovere/the age.

Shifting our perceptions Figure 6: Triple bottom line benefits of increased use of fire as a of fire management tool Inherent risk onomi Planned burning and using bushfires Ec c is inherently risky, with operations Catchments protected constrained by weather and the need Agricultural and forest/park based industries sustained to protect natural and built assets. Improved Infrastructure protection These risks need to be weighed Impr More resilient regional and Incr Env Imp species and habitats ir against the known and significant l oved ecosystemeased r diversity ofo a g rural enconomies n i ro c ty m ersonal i Reducedved er ecosystem service anticipated consequences from future p pr o fighter/ a oductivity sustained e S re

severe bushfires. n

t

ed fi Severe bushfires a Reduced l nd traum osion and injury andea traumas reduced The recent severe bushfire seasons unteer wellbein esilience

Incr Reduced damage vol loss a inflicted significant losses on many rural Reduced commun l and local services and loss educed impacts on R industries, in particular the tourism and Improved sustainability s giona re Improved wellbeing wine industries. As well as working Improved continuity of with community, it is important that services land and fire management agencies Increased resilience work closely with industry, especially in rural areas, to develop a balance between protection, ecosystem and Sharing of risk visitor experiences and local tourism industry needs. A greater and more consistent events. It is important that fire understanding of risks and an management agencies maintain strong Air quality acceptance of the need to share communications prior to and during Bushfires and planned burning impact them across all parties is required to planned burning activities to reduce significantly on air quality inV ictoria. achieve a new approach to bushfire these impacts. Air quality during the 2006/07 management. Management and bushfires was some of the worst on The lesson from the past 20–30 years acceptance of smoke is an example record in Victoria: is that if these risks and constraints are of where risk sharing and trade-offs • Visibility was reduced to 0.4 not understood and shared, but instead between conflicting interests and km in Wangaratta and 1.2 km are allowed to overwhelm the wider objectives are required. This involves in Melbourne compared to an use of fire as a management tool, then weighing up the benefits of planned optimum of 20 km; and severe fires such as theA lpine and burns and the negative impacts of • Particle levels were in the order of Great Divide Fires will become more smoke generated from these burns five times the optimum. likely and more devastating in a hotter against the greater amount of smoke, and drier climate. DSE and CFA work closely with the loss and damage arising from large- Environmental Protection Agency scale severe bushfire events. (EPA) and Department of Human Planned burning benefits the tourism Services (DHS) to provide advice to the industry by reducing the bushfire community about reducing the effects threat during peak summer holiday of smoke from planned burning and periods. Planned burning operations, bushfires, including coordinated including smoke and road closures, information and an alert system on however, may also impact on days of high smoke impact.

Photos: clockwise from top left – Phil Johnson/PV; Peter Beaton/DSE; steve grant/dse. 11 Building community capacity to live with fire

The Victorian public has shown a Strategic direction Changing the way fire agencies and communities heightened level of interest and Improve the community’s work together awareness about bushfire events. understanding of the role of fire This has been matched by a growing in the environment and increase Recommendations of the Victorian commitment and ability of fire shared responsibility for risk, BushfireI nquiry (2003) triggered agencies to inform and involve local prevention and preparedness for significant changes to the management communities across the prevention, bushfire. of bushfires, particularly the way in preparedness, response and recovery which fire agencies engage and work (PPRR) continuum. This approach to with communities. This has seen fire engagement is better for supporting agencies design and deliver a suite of the incorporation of local knowledge programs over the last five years to into decision making, as well as build a more informed and educated generating greater confidence and community, capable of living with fire. trust in fire agencies to manage the Prior to the 2006/07 bushfire season, fire threat. fire agencies delivered 1200 bushfire “It is apparent that many Victorian preparedness meetings across the communities are now much better state, attended by 27,000 people. informed about fire risk and During the 2006/07 Great Divide potential than they were as little bushfires, over 30,000 people as five years ago.T his has arisen attended a record 320 community as a direct result of sustained meetings delivered by fire agencies information to communities before over the 69 day fire period. and during fire incidents and the ”I can tell you it will be unanimous ongoing activities of the Fire Ready ... that CFA and DSE have done a Victoria program” magnificent job and are still doing it Smith, 2007 ...the interaction between CFA and DSE at the coalface in the meetings was just fine, not a difficulty” Resident NE Victoria, 2006

Figure 7: Community engagement

Communities capable of living with fire

Awareness of the Understanding Enhancing trust role of fire in the risks and sharing between fire environment responsibilities agencies and the community

Aware and engaged communities are resilient communities

12 Photos: background image – cfa; left – Cindy Hann/DSE. A growing fire threat Meeting the needs of our participants recognised that planned Despite improvements in working with diverse community burning is a necessary part of land management. The research also communities, the threat of losing life Fire agencies have developed highlighted a lack of knowledge and property through bushfire remains comprehensive knowledge in about the process of planned burning very real. While Victorian householders designing and delivering engagement and uncertainty surrounding its in high risk areas are increasingly well processes to meet diverse audiences. effectiveness. prepared to deal with risks posed by This experience is backed by rigorous fire, many need to do more. social research into the knowledge and The results of the education and Victoria is experiencing the expansion attitudes of Victorians. engagement trials demonstrated a dramatic shift in support of planned of the urban-rural fringe communities, In April and May 2008, a study of burning following a relatively small high population turnover, more knowledge and attitudes within the level of engagement (Figure 8). transient and diverse communities and Victorian public was made in relation declining volunteerism. In addition, to planned burning. The research The research reinforced that the millions of holiday makers visit high fire involved rural and urban focus Victorian public require a varied risk areas, often with little knowledge groups, in-depth interviews with peak approach to education and or experience of fire. bodies and major stakeholders and engagement activities around planned Practical experience and research trials aimed at testing community burning. For the majority, basic around community capacity building engagement and education information and clear messaging clearly demonstrate that long-term approaches. will adequately build understanding. Dialogue and transparency are seen as community change is achieved when The research revealed the public to be key to building trust and acceptance of people have a stronger sense of predominantly in favour of planned the use of fire as a management tool. ownership in the programs that shape burning to aid asset protection and their lives. This ownership is brought about by providing quality information, involvement in decision making and the development of skills, resources Figure 8: Overall impact of engagement trial on understanding and community networks. and attitudes to planned burning

Communities that are aware Baseline Following community engagement trial and prepared for bushfires also 100 Following community engagement trial perform better during other natural 90 Baseline emergencies. Following the April 2008 Melbourne wind storms, the Office 80 78% 76% of Emergency Service Commissioner 70 identified that communities that had a strong focus on bushfire preparation 60 and took responsibility for cleaning up 50 their properties suffered less damage. Per cent 40 “Public safety is not just about the emergency services, it is also about 30 26% communities and individuals who 20 understand safety, who prepare and 18% 10 plan and know where and how to access critical information” 0 % rated knowledge % very positive towards Bruce Esplin, Victoria’s Emergency excellent/very good planned burning Services Commissioner

Photos: dse. 13 Vision for a capable How we will do it An expanded Fire Ready Victoria program community Capitalise on our experience FRV is an effective and proven Delivering an increased burning Fire Ready Victoria (FRV) is a joint fire delivery mechanism for engaging program will require a significant shift agency initiative developed in response the community around living with in the knowledge and understanding to recommendations of the Victorian fire. The program enjoys a strong of Victorians about the role of fire in BushfireI nquiry (2003). The program community reputation and is the ideal the environment and, in particular, involves awareness campaigns, delivery vehicle for community capacity an acknowledgement of the risks communication, education and building initiatives under this strategy. and benefits of an increased burning empowerment in relation to bushfire New programs will build on existing regime. and planned burning in Victoria. FRV activities to build capacity across all is acknowledged as being successful Victorians will need to: facets of land and fire management. in building community capacity to live • Understand the role of fire in the with fire. 1. Building community capacity environment and the challenges of • Fire in the environment – More living in a fire prone country; Campaigns for prevention and Victorians will be exposed to key • Play an active role in helping land preparedness under FRV, the Stay messages around the natural and fire agencies to make decisions or Go message and development role of fire, the use of fire as a around planned burning and other of private landholder Bushfire Plans management tool to increase risk reduction options; are among Victoria’s success stories community safety and ecosystem • Accept that managing risk in community engagement around resilience as well as the need and reducing loss is a shared fire prevention.E vidence from recent to share responsibility for risk. responsibility between government fires demonstrates increased levels Broad awareness campaigns and the community (including of participation, understanding and providing improved information individual property owners); preparedness among communities at will be employed using media • Work together to deliver greater risk from bushfire. and advertising. Web-based resolution and agreement over “I would expect in the event of information and text messaging conflicting objectives; and fire you have to protect your own services have been highlighted by • Increase resilience and foster property. And I think that’s probably the community as vital tools for proactive plans to protect a point we all realised, we are all providing information on bushfires community assets. responsible for our own assets.” and planned burns. A key tenet of the BushfireS trategy Resident, NE Victoria, 2006 is to: Build the capacity and confidence of Victorians to understand, accept and actively participate in the use of planned fire to ensure community safety and forest health.

14 Photos: clockwise from top left – George O’Dwyer/DSE; Lauren Butterfield/dse; Cindy Hann/dse; Cindy Hann/dse. • Community support for planned • Resilient communities – Programs 2. Building skilled and responsive burning – Communities in rural specifically targeting high risk organisations and interface areas and indigenous communities including special needs Delivery of effective community communities will be further groups will be developed to increase capacity building requires highly skilled engaged and involved in decision the adoption of preparedness and dedicated fire agencies utilising making around planning for fire. measures and appropriate response collaborative programs tailored to Local engagement teams, expanded behaviours. These programs also changing community demographics. education programs and community aim to build the confidence and • Local Engagement teams – Key risk planning programs will support support of these communities as priorities will be the expansion of capacity building. key advocates for the activities of on-ground facilitators to actively in addition, the formation of a fire agencies. engage with the community at the Victorian Bushfire Roundtable highly specialised education local level together with improved to promote dialogue and shared programs will target household community engagement skill decision making around fire and community plans and involve development across all fire roles. planning with industry and key intensive case management. • Interagency partnerships stakeholders, has been initiated. Communities will also be supported – Partnerships between land and A trial has been endorsed by to manage psychological stress and fire agencies will be strengthened a range of key stakeholders social disruption created by major to ensure a coordinated and representing primary industries, incidents. collegiate approach to land and fire community and environmental management. The DHS work on groups. bushfire preparedness in vulnerable communities is an example of a government partnership relevant to this strategy.

Figure 9: Living with fire: Community participatory engagement activities

Engagement Level Example Programs

• Community Fireguard Participate • Highly specialised education Intensive capacity building and information programs programs for high risk • Community advocacy communities to build resilience development and self reliance and • Community fire risk plans incorporate local knowledge • Victorian Bushfire Roundtable into decision making with key stakeholders

• Engagement in Fire Operations Plans Accept Local programs which support • Local Fire Expos with tourism community to understand and and accommodation providers accept the risks and benefits • Brigades in Schools associated with large scale burning • Expanded schools education program

• Media advertising Aware Broad programs which inform and educate the • Development of information community about the role of fire in the about planned burning environment • Leaflets/letter drops/posters

Photos: clockwise from top right – Steve Grant/DSE; cfa; cfa. 15 Enhanced response & recovery capability

Victoria’s bushfire-fighting agencies Strategic direction are recognised as world leaders in Continue to lead the way in fire putting bushfires out. This reputation response while building on our has been earned with success on recovery efforts. Including: first attack, as well as managing • aircraft and rappel crews for rapid prolonged ‘campaign’ fires, especially and remote area response; in remote areas. The highly developed • greater integration across dry firefighting skills (limited water) agencies, including shared positions Victoria’s bushfire agencies to vehicles and the integrated successfully operate in drier conditions Emergency Coordination Centre; under climate change. • road and strategic fuelbreak networks for increased protection Elements of successful • Seamless and integrated incident and safer working environment response control and coordination, ensuring for firefighters; The major elements of successful fire adequate planning, response • seamless integration and support suppression, both first attack and and information is available for recovery from bushfires. extended attack are the same: to firefighters and threatened • Sufficient numbers and coverage communities; and of fit, skilled, accredited and • Modern logistics systems that can experienced firefighters, including be quickly deployed to support expert remote area firefighters, such ground crews and help manage as helicopter rappel teams, allowing health, wellbeing and fatigue issues. rapid response to all areas of the state; • Firefighting equipment designed specifically for bushfires, including 4WD slip-on units, tankers and bulldozers enabling firefighters to operate in a safe, efficient and environmentally aware manner; • An aircraft fleet that supports on-ground firefighters providing detection, access and bombing, as well as providing rapid transport; • State of the art equipment and technology, such as the Infrared LineScan, GPS and thermal imaging, to inform firefighters of current fire conditions;

16 Photos: background image – cfa; clockwise from top – Jim Mottishaw/british columbia forest service; Bryan Rees/state aircraft unit. Challenges to safe, Radios and communication Firefighting in the future effective firefighting Reliable and effective communication Key response challenges in the systems are vital for the safety of Increasing bushfire frequency and future include multiple ignitions in firefighters, threatened communities severity raises the exposure of remote areas, rapidly developing and for the efficient management of firefighters to fire, presenting greater fires in interface areas and prolonged bushfires.A n effective and reliable safety challenges for fire management campaign fires.T o manage these communications network will be agencies. challenges requires a skilled, maintained to ensure safe fire fighting experienced and resourced response Bushfire agencies must manage: operations. capability. It must have the flexibility Diminishing people capacity Equipment and mobility to be deployed around Changing settlement patterns and The rapidly changing bushfire the state providing rapid first attack demographics in bushfire prone landscape requires highly mobile and sustained campaign operations. areas and competition with other and agile bushfire agencies.T hese Risk based approach industries have led to a reduction in agencies need the ability to make the The allocation and positioning of both volunteer and career firefighter most of advancements in firefighting resources is based on projected recruitment pools. As well as having technologies, including vehicles and IT. bushfire risk levels, both seasonal and fewer people available, valuable local Access and support daily, to ensure appropriate coverage knowledge and skills are also being lost. Roads, water points (dams) and and maximised response capability. strategic fuel breaks play an important To achieve this requires a flexible and role in fire operations, particularly mobile workforce. in first attack and firefighter safety. For the past 15–20 years, through changing rural industries and a shift in land management, the maintenance of access roads, water points and fuelbreaks has become increasingly challenging.

Photos: clockwise from top left – cfa; cfa; CFA; DSE; Richard Teychenne/DSE; Richard Teychenne/DSE. 17 Flexible aircraft fleet More firefighters helps manage firefighter fatigue. An aircraft fleet with flexibility to meet A fit, trained, experienced and Recently, Victoria’s firefighting an array of response and detection accredited mobile firefighting force agencies have drawn experienced operations including: that can be deployed around the state resources from interstate and • First attack fleet for rapid response is needed to meet risk levels. Increased overseas to boost the surge capacity. across the state; investment in firefighter development Strengthening these arrangements is • Larger water capacity aircraft fleet is required to bridge the experience a vital component of ensuring access for high risk and campaign fires; gap and ensure skills progression of to skilled and experienced surge • Dedicated aircraft strategically operational and incident managers. resources in the future. located to protect significant state To support an agile workforce requires Strategic fuel breaks assets (e.g. Melbourne’s water the development and maintenance of The establishment and maintenance catchments) and high fire risk areas suitable facilities in remote locations of a network of strategic fuel breaks (e.g. Otways); (mobile and/or fixed). will provide extra support for the • Upgraded network of airbases and protection of significant assets, facilities across the state to support The increase in planned burning and changing nature of response ecosystems and communities. air operations, especially in remote Importantly they create a safer locations; and efforts requires a shift in traditional planning, logistics and operations workplace for firefighters and facilitate • Upgraded dispatch, coordination the delivery of planned burns. and operational safety systems roles. Planning for response operations to meet specific aviation risk will require a holistic approach, Roads and water points. management requirements. drawing on all elements of land and An effective and well maintained road fire management, including planned and bridge network across the public Integrated equipment burning objectives and operations, land estate enhances rapid response, Integrated DSE/CFA vehicle and cultural heritage values and asset providing ready access to water and equipment fleets are needed to values. improving firefighter safety. ensure that the fleet mix matches local needs. The right equipment in Operations will need to examine Integrated control and the right location is critical to ensuring the best use of resources, including coordination firefighting agencies and trained local aircraft and ground crews with Seamless integration of agencies communities have the capacity to support from logistics with facilities, delivers efficient and comprehensive undertake rapid first attack. accommodation, equipment, resources coordination and control at local, and staff movement. regional and state levels. A key Remote firefighting capability project will be the establishment of an An enhanced rapid response capability Integrated Emergency Coordination in remote areas is crucial for successful Centre. first attack.I nvestment in remote Increased support and development capability, including extra helicopter of incident control and coordination rappel teams is a key element of centres, including mobile and fixed future response strategies. infrastructure, will enable rapid Transition to campaign fires deployment of Incident Management When first attack is unsuccessful, Teams (IMT’s). Employment of the the seamless transition to campaign latest technology, especially IT and (prolonged) response is critical. communications, allows for real-time Managing campaign fires requires information flow from fire ground access to a large resource base that to incident control centres and the allows for rapid surge capacity and community.

18 Photos: clockwise from top left – Neville fowler/dse; DSE; DSE; dse. policy, outlining assistance available to Bushfire agencies will Recovery those adversely affected by bushfire or work closely with DHS, the planned fire. lead recovery for agency Recovery begins the day the fire starts. in Victoria, and with other Effective recovery can not wait until Without additional planning a gap recovery support agencies the fire is controlled. can emerge between the burning activity, emergency response activity such as DPI (agricultural Victorian communities have become and recovery assistance. Whilst fire recovery) to ensure that increasingly expectant that emergency agencies’ processes have reduced government support to management organisations will this gap, the community expects fire affected communities, coordinate the entire Prevention, a seamless transition from the individuals and businesses Preparedness, Response and Recovery burning or suppression activity to is delivered in a seamless cycle. This is a theme repeated globally recovery. Presentation of a whole of and efficient manner. following natural disasters such as government approach to communities Clear and consistent recovery policy Hurricane Katrina and the 2004 South impacted is a challenge for the (e.g. fencing and water replacement) Asia Tsunami. This experience has multiple agencies involved in providing that outlines government support for driven a greater emphasis on recovery, recovery assistance. fire affected communities, individuals including the social, economic, built, and businesses, and encourages cultural and environmental impacts. Recovery in the future the uptake of appropriate levels of Challenges of an Effective bushfire recovery requires insurance will assist in delivering increased focus on a whole of government approach to effective and responsive recovery ensure that recovery commences with recovery programs. response. Historically, bushfire agencies have Increased capacity A consistent approach focussed on environmental aspects Increasing the capacity of bushfire Embedding recovery in emergency of recovery, in particular track recovery agencies to provide assistance coordination structures will improve rehabilitation and erosion control. The and integrated recovery planning will the seamless integration of recovery community’s expectation of a smooth provide more efficient and enhanced into bushfire management. seamless transition to recovery requires recovery programs. skills, expertise and resources. The sustained commitment to emergency efforts heavily affects Figure 10: Emergency Management Model bushfire agencies who, over successive seasons of major bushfires, become PREVENTION RESPONSE caught in a response-recovery cycle, ACTIVITIES PREVENTION Risk Management & RESPONSE ACTIVITIES which impacts negatively on normal Legislation Warnings Firefighting Regulation Fuel reduction burning Rescue Land use controls Flood organisational responsibilities. Enforcement Planning Sandbagging Preparedness Searches Community awareness An increase in the use of fire to reduce Rebuilding Training Restoration Exercising Evacuation Finance Relief centres fuel loads in our forests will require RECOVERY Community action Temporary accommodation Advocacy Registration an increased capacity to undertake & PREVENTION RESPONSE RECOVERY & RECOVERY rehabilitation and recovery on public ACTIVITIES Counselling and private land. PREVENTION Personal support RESPONSE & Material aid Community programs Communities need assurances that RECOVERY Financial assistance an increased burning program will Source: Emergency Managment Manual, 2006 also have in place clear and consistent Effective emergency management requires prevention, preparedness, response and recovery

Photos: clockwise from bottom left – DSE; Rachel Dawkins/DSE; DSE. 19 Workforce/ volunteer capability

The ability of Victoria’s bushfire up of former Departments through Strategic direction management agencies to prevent, machinery of government changes. Build and maintain a skilled, fit prepare, respond and recover from The current model utilises a core of and experienced firefighting force bushfires is wholly dependent on full-time bushfire management staff to deliver an increased planned having a sufficient number and supported by over 2,500 others across burning program, meet rising distribution of fit, skilled, trained government (staff, CBD and regional, response needs and provide support and experienced personnel readily whose roles are not primarily fire to volunteers. available. related but who regularly undertake The NEO fire response and planned burning DSE is responsible for managing roles during the fire season),plus up to bushfires on public land, which 700 seasonal Project Firefighters. is currently delivered through the The contribution of the NEO partners Networked Emergency Organisation is vital, as they provide many of the (NEO) partnership model. skilled and experienced firefighters. The NEO partners, Parks Victoria CFA (PV), Department of Primary Industry CFA relies on an integrated workforce (DPI), Department of Planning and of 58,000 volunteers (of whom up to Community Development (DPCD), one third are operational firefighters) Melbourne Water (MW) and supported by paid firefighters and VicForests, reflects the evolution other staff. of responsibility from the Forest Commission to DSE and the break- CFA has broad emergency management responsibilities. The demand for all CFA services is Figure 11: NEO personnel available for bushfire response by DSE region increasing in line with community growth, needs and expectations and a North West Region 1% changing community risk profile. 41% 37% A paradigm shift The Victorian BushfireI nquiry (2003) 21% North East Region concluded that bushfire management 2% 1% 7% is a 365 day operation and is no longer considered a seasonal activity. 25% 48% Any increase in planned burning and South West Region Port Phillip Region community engagement will require 1% 17% 1% 13% increases in planning and operational 1% 35% 25% Gippsland Region 35% 9% 2% 1% resources across NEO and CFA. 14%

51% 51% Risks to communities and firefighters 11% have reached unprecedented levels

21% driven by climate variability, changed 29% Metro Support 2% 6% settlement patterns and increased fire 8% Department of Sustainability and Environment Parks Victoria activity. 14% 70% Department of Primary Industries

Vic Forests

Melbourne Water

Department of Planning and Community Development

20 Photos: background image – DSE; left to right – Michael Schoen/PV; CFA. Figure 12: CFA workforce Challenges and limitations deployments such as planned burns 658 2,280 762 common to both agencies and also find it difficult to commit to Managing risk to ensure firefighter campaign fires. health and well-being, in particular 57,831 The “tree change/sea change” trend physical and psychological fatigue, has changed some rural communities. are a significant challenge for bushfire They are not as experienced in fire or agencies. The constant, recurring as self-reliant as previous communities. demand to cycle between response These communities have different and prevention places further pressure expectations of the emergency services on our workforces. that should be provided. To deliver prevention, preparedness, Competitive workplace response, recovery and ecosystem The changing face of the Australian services requires a sustainable workforce poses numerous challenges workforce that is appropriately for bushfire agencies. Including: Staff Operational distributed throughout the state Staff Operational Support • Different workplace expectations of Volunteers with adequate skills, experience and generations; and Junior Members training, supported by adequate • Intense competition for skilled and equipment and infrastructure. experienced staff requires agencies Ongoing workforce and volunteer to be more attractive. management, including succession Australia’s labour markets are tight planning, growth and talent and highly competitive for skilled management is vital. The profile labour. The ageing workforce and of experience, especially for on- changing nature of employee ground operational managers, if not behaviours and expectations create proactively recruited, will leave bushfire challenges for all employers to agencies exposed in the near future attract and retain staff. Public sector (see figures 13 and 14). employers often have added difficulties Volunteers are generally less likely in meeting these challenges with less to be available for non-emergency flexible recruitment practices, having

Figure 14: Age distribution of NEO staff available for fire suppression 120 Figure 13: Age profile incident controllers 100 15 Incident Controller 1 IC 3 Incident Controller 2 80 12 Incident Controller 3 IC 2 (Senior – Major Fires) 9 60 IC 1 Number

40 Number 6

3 20

0 30–34 35–39 40–44 45–49 50–54 55–59 60–64 0

Age 19 22 25 28 31 34 37 40 43 46 49 52 55 58 61 64 67 70 74 Age

Photos: left to right – Steve Grant/dse; Department of Conservation, New Zealand. 21 to compete on price in a volatile Future directions Attracting and retaining staff labour market and the legacy of – Core capability and volunteers superannuation schemes that can A key aspect of maintaining and Building the experience profile drive early retirement. building bushfire management Investment in training and capacity is the ability of land and fire Challenges for NEO development opportunities is required management agencies to attract and Prolonged campaign efforts and the to ensure bushfire agencies have retain personnel. move to a 365 day a year business enough skilled and experienced focus significantly impacts onNEO on-ground and incident managers. Desirable place to work agencies’ abilities to meet their This includes supporting accelerated In the current labour market, land and organisational responsibilities, placing training and learning programs, such fire management agencies must be pressure on the partnership model. as additional interstate and overseas competitive to attract and retain staff. It is becoming increasingly evident secondments. Aside from pay and conditions, other options available include providing that further fragmentation of DSE or Designing attractive incentive exciting career pathways through NEO partners will increase complexity programs to retain and attract progression planning and personal and limit the ability to meet the rising firefighters to undertake both senior development opportunities. Enticing challenges of bushfire management. on-ground and incident management reward and recognition strategies will Challenges for CFA roles is an important tool in also create incentives to attract and CFA’s capacity to respond to bushfires maintaining experience capability. retain the right staff. in support of DSE is stretched by the Scholarship programs, such as Organisational culture and leadership increasingly broad and diverse range graduate programs, will be used to are also factors in attracting and of emergencies which compete for obtain specific skill sets and assist retaining staff. local CFA resources. with succession planning. Building capacity Retaining volunteers, with increased Streamlined training Building the experience and capability commitments for response and Having properly trained and accredited of current staff is insufficient to deliver training, creates additional complexity firefighters is the most critical element significant changes to land and fire for the CFA. of achieving firefighter safety. management objectives or reduce Building partnerships with employers It is important that training programs fatigue issues. is required to ensure that the incorporate the latest information To successfully deliver an increased volunteer workforce continues to and are delivered in an efficient planned burning program, greater be able to participate in response manner. Future training packages will community engagement, improved activities, in particular campaign fires. involve a shift to a modular approach monitoring and evaluation while Declining and changing rural and increase the use of existing and maintaining and enhancing response populations in some parts of Victoria new internal and external training capacity requires a significant are having an impact on the viability providers. investment in staff. of some rural CFA brigades. As well as training, it is important to provide increased opportunities for skills enhancement and maintenance.

22 Photos: left to right: Steve Grant/DSE; Bryan Rees/State Aircraft Unit. This includes employing more Future directions Fit for work permanent firefighters and skilled staff – Surge capacity Managing firefighter health and safety as well as investing in equipment and is as important before and after as it Firefighting agencies require significant infrastructure to enable and support a is during an event. Investment and resources to safely manage longer fire larger, more mobile workforce. support of programs that proactively seasons, with prolonged campaign maintain health, fitness and well- Support for volunteers will also need efforts while retaining capacity to still being including annual “fit for work” to be increased to maintain the viability deliver land and fire management initiatives and provision of ongoing and sustainability of CFA volunteer responsibilities. brigades. stress management. These will help to More firefighters maintain healthy and motivated staff Building an identity The current NEO partnership concept and volunteers. Establishing a branding for all partners requires strengthening and broadening Fatigue: spreading the load involved in bushfire management will to incorporate a Whole of Government Managing firefighter fatigue, both on- help to provide a sense of belonging commitment to bushfires.I t has ground and in incident management and true partnership. This will assist to potential to expand to an all hazard roles is a major challenge. During times strengthen the NEO partnerships for approach to emergency management. of prolonged or campaign response, the next 3-5 years and provide better There is also the opportunity for the the effect of accumulated fatigue opportunities to remove disincentives participation of large corporations (physical and mental) is significant. for current partners to participate in under a “Good Corporate Citizenship” Historically, the effects of accumulated fire management. program. fatigue have been compounded after Responsive workforce an event with staff and volunteers A more flexible workforce that can expected to return to normal work. be deployed around the State and Proactive measures to support business is driven by risk assessment and continuity and manage staff return to work demands while supported by work are needed to reduce the back appropriate technology. log of work to be overcome when Health and wellbeing returning to normal duties. Firefighter safety is the number one The addition of extra resources will priority of any fire management help to alleviate the fatigue issue by activity. This requires attention on and spreading the workload and not relying off the fire line. on the same workforce to deliver land, Successful delivery of land and fire and emergency management fire management programs, activities. including response, requires a better understanding of the capacity and availability of staff and volunteers. Appropriate reward and recognition programs for contribution to bushfire management for all volunteers, paid staff and their families will help maintain morale and continued involvement.

Photos: clockwise from bottom left – DSE; Brian Coster/British Columbia Forest Service; Tasmania Fire Service. 23 Planning for protection

The key drivers of change are increased Strategic direction Land use demand for new housing statewide due Provide the community and planners planning to population growth and changing with better risk management and demographics such as ”tree change mitigation tools, including the for bushfire and sea change” lifestyle trends. acceleration of the implementation Significant growth has already occurred of Integrated Fire Management protection in high bushfire risk areas including the Planning. The Council of Australian Government peri-urban areas around Melbourne, (COAG) Inquiry on Bushfire Mitigation Geelong, Ballarat, Bendigo, the and Management (2004) found that: towns of La Trobe Valley and coastal land use planning that takes settlements, such as the Surf Coast. into account natural hazard risks is the single most important Planning for protection against bushfires mitigation measure for preventing is undertaken at two broad levels, future disaster losses (including land use planning through planning from bushfires) in areas of new schemes and bushfire management development. planning. Good planning informs land use and management decisions through The impacts of climate change include engagement and discussion between drier and warmer weather and a greater communities and stakeholders. It frequency of extreme events, creating uses available knowledge, promotes an increased bushfire risk. These integration and adequately identifies impacts are further heightened when and shares risks to define agreed combined with continuing trends to strategies and actions. This can be extend living and industry into bushland supported by decision making tools and areas with high amenity (lifestyle) values market-based instruments to achieve and bushfire risk. the best outcomes. Figure 15: Fairhaven burnt out and rebuilt since Ash Wednesday 1983

Key: = Lost and rebuilt since Ash Wednesday = New Construction since Ash Wednesday = Survived Ash Wednesday

24 Photos: background image – CFA; top right – David Boyle/DPI. Current planning approach lifestyle blocks, homes and workplaces Policy Framework Planning is undertaken at both a policy must be shared. • Developing a hierarchy of planning and statutory level. The statewide policy Urban growth principles to guide development and approach to managing bushfire risk is Issues in addressing existing and new decision making processes in high reflected in theS tate Planning Policy developments in high bushfire risk risk areas, including bushfires, and Framework. Statutory planning tools, areas include: other natural hazards such as storm such as zones and overlays operate • Adequate consideration of bushfire surge (coastal), flood and landslip, for at the local government level through risks during early strategic planning example: planning schemes. For example, the stages of new developments, – prohibiting certain types of new Wildfire ManagementO verlay (WMO) including excluding or modifying development including schools, identifies high bushfire risk areas, where developments in high bushfire risk child care centres, and aged care bushfires pose a threat to life and areas; facilities; property. The WMO does not prohibit • Addressing risks within and around – ensuring new developments or development rather it provides a set existing developments, especially in structures in bushfire prone areas of objectives and decision criteria for high bushfire risk areas such as the mitigate the risk from severe planning authorities to apply when Dandenongs, Macedon and Surf bushfires through their location, assessing development applications. Coast; and design and construction; • Bushfire agencies working with • Improving the integration of bushfire Further work is required to assess what planning with land use planning; impacts current planning approaches land managers, developers and communities to share solutions and • Ensuring land use planning processes are having on development in high support emergency management fire risk areas as there is a significant responsibility for bushfire risks within and around existing developments. responses, and enable individuals to increase in houses constructed in the “stay and defend or go early”; and Ash Wednesday bushfire footprint, Competing objectives • Increasing consistency and for example Fairhaven on the Surf Delivering bushfire risk mitigation, strengthening linkages between Coast (Figure 15 and ‘A new approach environmental protection and lifestyle planning and building controls, required for managing settlement). outcomes has the following challenges: including programs to benefit Following the recent Melbourne 2030 • Balancing the objectives of existing developments (e.g. home risk Audit the Government committed to managing bushfire risk and assessment and retrofit programs). review the effectiveness of policies, maintaining biodiversity and Research and Modelling regulations and guidelines applying residential amenity; and • Investigating risk threshold and to the location and design of new • Developing appropriate incentives development capacity issues for fringe settlements in fire prone areas to and education programs which identified high bushfire risk areas; improve safety. encourage land owners and • Understanding best practice and developers to improve practices for investigating subdivision, built form Issues and challenges for broader environmental benefits and land use planning and design outcomes to reduce bushfire safety. risk, as well as promote sustainable In this rapidly changing bushfire A new approach required living approaches (bushfire and risk environment, adequate risk for managing settlement energy efficient designs are management can only be achieved complementary); through shared responsibility between To better manage future bushfire • Developing tools to support the Government and the public. risk, land and fire management planning and risk management Responsibility for undertaking bushfire agencies will work with planners decision making by planners, prevention and protection activities by to review Government policy and communities and individuals; and designing and maintaining safe living improve planning outcomes through • Investigating options to improve and working environments across the Victorian Planning System. This the certainty and consistency of public land, farming, production areas, involves: planning in high bushfire risk areas.

Photos: top to bottom – dse; cfa. 25 Capacity Building has allowed biodiversity and ecosystem • Work with vulnerable communities Bushfire services objectives to be incorporated and local government to find management in the Fire Ecology Planning process practicable and workable solutions and will now form part of new Fire to managing areas of high bushfire planning Management Plans. risk, using the following principles: Bushfire management planning Councils and public authorities have – Identify exposure to risk; provides a framework for strategic statutory responsibilities for fire – Facilitate local solutions to the and operational plans based on key prevention. Councils have additional exposed risk; land and fire management objectives, accountability for Municipal Fire – Provide advice to Government on including protection, biodiversity, Prevention Plans (MFPPs). The 2003 potential solution; ecosystem services and industry needs. Auditor General’s Report into fire – Develop the necessary tools The aim is to reduce detrimental prevention and preparedness and to respond to the potential bushfire impacts and better promote the 2003 Victorian Bushfire Inquiry solutions; community and ecosystem resilience. identified a number of deficiencies in • Ensuring the responsibility for For emergency management planning municipal fire prevention planning. In bushfire risk management is it aims to facilitate the development of particular, private land holders have no accepted, shared and acted upon integrated prevention, preparedness, explicit regulatory responsibility for fire by all stakeholders; and response and recovery plans with prevention or preparedness. • Supporting community and agency the involvement of communities, Challenges and issues capacity to better plan, assess and stakeholders and land and fire act on outcomes. management agencies. For land Existing fire management plans have management it aims to incorporate not adequately created a framework conservation and ecosystem service that address current and emerging needs. risks or reflect the fact fires spread freely across the public and private Current approach land. The risks are complex, dynamic In Victoria, the long-term strategic and vary depending on people’s plans for bushfire management values and perceptions. Future fire on public land have focussed on management planning will aim to Fire Protection Plans. The Victorian better understand and integrate all BushfireI nquiry (2003) found that components and stakeholders involved this protection driven approach in land and fire management. had contributed to the removal of fire from the landscape and lacked integration with private land. It is likely that this approach failed to protect and enhance ecosystem services (e.g. biodiversity, timber, water). The Code of Practice for Fire Management on Public Land (Revision 1) 2006 enables an integrated holistic approach to bushfire management planning. Investment, including creating Fire Ecology Project Officers

26 Photos: clockwise from top left – Rachel Dawkin/dse; gill cooper/DSE; DSE; Kate Elzinga/DSE. The community holds competing • Increasing the understanding and Fire Operations Planning views about the best strategies and sharing of risks and accountability Fire Operations Plans (FOP’s) outline the actions to reduce severe bushfire between land and fire management short–medium term implementation of impacts. There must also be an agencies, local government and Fire Management Plans, in particular acknowledgment that some groups private landholders; and prevention and preparedness operations suffer the potential impacts of • Addressing the risk of arson and (planned burning, slashing etc). They proposed mitigation strategies more accidental fire ignitions. are a key mechanism to inform and than others (eg asthma sufferers). A new approach engage the community of operational Future of bushfire Integrated Fire Management actions for the following three years, as planning Planning well as providing short term objectives, including the immediate planned The key challenge for bushfire The Victorian BushfireI nquiry (2003) burning program. management planning is to recommended improved integration systematically move communities of bushfire management across all Improvements in FOP’s are required as well as land, fire and emergency tenures. The recent Integrated Fire to better reflect the shift to landscape management agencies from a Management Planning (IFMP) initiative scale mosaic burning activities, whilst response focus to a prevention, is designed to improve the consistency ensuring smaller protection and preparedness and ecosystem health of bushfire management planning by ecological burns remain adequately focus. establishing a framework for a more captured. coordinated and accountable approach. Future bushfire management planning challenges are: IFMP aims for multi-agency and • Reducing the impact of severe fire community involvement in the events in the face of climate, other management of bushfire risk across all environment and development tenures by delivering integrated and changes; holistic fire planning that accounts • Supporting local government for protection, biodiversity and other and capacity to deliver their ecosystem needs. bushfire management planning IFMP provides an appropriate platform responsibilities; to meet the challenges of a rapidly • Increasing integration with key changing and more bushfire prone stakeholders such as utilities, environment. Implementation of infrastructure providers, Alpine IFMP will be accelerated through Resorts and private timber provision of: companies; • Expertise, capability and resources • Defining objectives and strategies to undertake planning in priority that will enhance community and areas; and ecosystem resilience; • Tools and information to support • Protecting significant assets, risk assessment and decision including water catchments; making. • Engaging communities in strategic decision making to promote sharing of risk over the need for more fire on public and private land, plus acceptance of its impacts (e.g., smoke), inherent risk and disruption to industries like tourism;

Photos: clockwise from bottom left – DSE; CFA; DSE. 27 Risk & adaptive management

Victoria’s bushfire agencies successfully An adaptive management cycle has Strategic direction extinguish over 80% of lightning five critical steps: Develop a more responsive strikes and other ignitions before they 1. Identify what we know approach to the management of spread and threaten communities. 2. Identify what’s changing bushfires based on continuous The paradox of highly effective 3. Take action learning and improvement through bushfire control – the icon of success 4. Evaluate the development of interagency for agencies worldwide – is that it 5. Adapt and modify risk modelling, statewide scenario helps build up the fuels that support planning and improved ecological large fires. research and monitoring. Linkages, causes and effects of bushfire disasters are complex and continue to change. Therefore, bushfire management must be adaptive.

Figure 16: The risk and adaptive management cycle

What we know

AdaptWhat’s and What’s known?modify changing Risk and adaptive management

Take Evaluate action

28 Photos: background image – cfa; clockwise from bottom right – bryan rees/state aircraft unit; dse; george o’dwyer/dse; alex shilton/dse. What we know Bushfire management must change Evaluate Bushfires will continue to take place and adapt to risk. A recurrence of Ash Continuous improvement in while fires of disastrous impact Wednesday-like fire conditions would operational performance alone is need not. Disasters are symptoms of result in a much greater disaster. insufficient to adapt to the changing multiple and inter-linked failures to Worldwide lessons highlight the bushfire risk environment.A ssessing foresee and address risks that grow need to invest more in prevention, risk and the achievement of real unnoticed over time leading to events preparedness and in ecosystem outcomes across the landscape over that overwhelm communities and management. decades is required. emergency services. Predicting change, including the Evaluation must include feedback Treating bushfire risks can be counter effects of different courses of action, from community, through community intuitive. Effective treatment of local is critical. So too is comparing members undertaking monitoring, risks is often at odds with effective predictions with actual change, to identifying learnings and feeding this treatment of risk across broader areas improve future action. Necessary into the fire planning cycles. and timeframes. approaches include scenario planning and adding the formal rigour of Evaluation and learning requires The Council of Australian scientific method to the necessary fire agency staff to have the Governments (COAG) Inquiry on experimentation that daily fire capacity to observe the way our Bushfire Mitigation and Management operations require. surroundings react to our actions, (2004) identified bushfires as a review expectations about the future, special case and highlighted the need Take action reflect on what they do and make for enhancement of government Taking action includes: appropriate adjustments. approaches to risk management. • More proactive definition of what Agencies must invest in research, Effective assessment of bushfire risks the community wants, through expert opinion, rethinking procedures, will require significant investment to initial learnings and ongoing risk challenging strategic wisdom, develop the necessary techniques to assessment; monitoring, predicting and sharing of capture the state of current risks and • Achieving better agreement with local knowledge. the mechanisms that drive them. communities over necessary actions Adapt and modify What’s changing and any associated trade-offs (e.g. biodiversity versus protection), Useful learning must result in change Bushfire risks are changing: plus sharing of risk and discomfort and adaptation. Making changes • Threat rises with greater fuel loads, (e.g. the need for smoke) and the through ‘learning’ must become drought and fire dangers; gaining and use of knowledge; routine, not just something that • Exposure rises as ”sea changers/tree • Greater use of fire under a wider happens after bushfire disasters. changers” populate bushfire-prone range of conditions to achieve what areas for amenity and lifestyle, Bushfire agencies and communities the community wants; must learn together, so that they can while other rural populations age • Achieving more integrated and and decline; respond to changes faster and achieve holistic planning of land use and better outcomes. • Expectations of services rise, as bushfire management; does community dependence on • Implementing the risk and adaptive Adaptation takes effort and time. them – the services relate to land, management cycle; Achieving adaptive behaviours will fire, emergencies, infrastructure and • Improved ecosystem monitoring depend on deliberate investment in social well-being; and and modelling; and that activity across the community and • Biodiversity risks rise as fire control • Re-allocating and increasing our agency workforces. excludes fire from vast tracts of capacity to achieve these initiatives bush then fails to prevent large fires, and to address the existing threats. burning large tracts all at once.

Photos: from left to right: CFA; peter hawker/PV; cfa. 29 Risk and adaptive A bushfire risk management 2. Performance evaluation management in practice framework will allow land and fire To be effective, agencies must management decision-making to understand and monitor performance Effective implementation of the be transparent, based on needs in the short, medium and long-term. Strategy in a time of climate, social of environmental, protection and and ecological change, will involve a In the short-term the agencies must ecosystem services, supported by set of five integrated initiatives. be effective in meeting service delivery assessments of risk and possible objectives such as the annual extent of 1. Risk management framework treatments. planned burning. Such measures must, To best treat bushfire risks, agencies The framework will enable trained however, measure their intended effect must understand where, when and staff to undertake planning and such as reduced levels of fuel hazard. how the risks apply across Victoria, allocate resources based on a both locally and strategically. The measures will be global or purpose- systematic analysis of risk. built and involve lead indicators and The interrelated and dynamic nature The framework will allow agencies to regular monitoring and assessment. of bushfire risks, ignition, spread and consider the values and perceptions damage (figure 17) are distinctive and Medium-term and long-term measures of the community in determining do not fit standard risk management will range from coarse indicators local strategies, and help in analysing frameworks. using existing capabilities, to leading treatment effectiveness. indicators of effectiveness at statewide, The development of a custom risk Cooperative research between fire regional and local level, addressing management framework, which better agencies, the Bushfire CRC and resilience and supported by systematic incorporates bushfire risk drivers and Melbourne University has increased monitoring. risk interactions, will enable bushfire understanding of the relationship agencies to better model, monitor Recent fire climatology and climate between bushfire threat, critical risk and prioritise risks. The custom change modelling has allowed bushfire and climate change through the framework will be consistent with the agencies to better evaluate the Phoenix Fire Spread Model. broader Victorian Risk Management changing bushfire risk environment, Frameworks. such as increasing Fire Danger Index trends.

Figure 17: Bushfire risk management Likelihood Consequence Chance of fire starting Spreading Doing damage

30 Photos: from left – dse; dse; dse.. 3. Adaptive management and 4. Enabling Information 5. Research learning Technology Investing in ongoing research programs Ideally, management is adaptive, not State of the art IT systems are is a critical element of adaptive reactive or disconnected. Effective essential for making land and fire management. To continuously managers continually assess and management agencies more effective improve, any organisation must review, learn from their changing operating and responsive. IT allows for rapid monitor and research its past, current environment by reviewing the impact information sharing, facilitates and future environments to identify and effect their actions (or inactions) predictive and risk modelling and gaps, changes and better ways to do are having on this environment. They promotes good adaptive management. business. then match or adapt their responses to The creation and enhancement of An adequate land and fire research this reality. IT systems with the latest modelling, program, with strong linkages between Uncertainty and change are the collaborative and interactive staff and research activities is critical to major factors that drive the need technologies will allow strong the success of this strategy, especially for adaptation. Managers can tackle integration between agencies and in a time of climate change. uncertainty head-on by being ‘actively’ effective participation of community in Development of existing partnerships adaptive and deliberately taking bushfire management. with research organisations, such actions that explore by designing the Delivering an improved IT system as universities, the Bushfire CRC effects of alternative thinking and requires investment in data sharing, and AFAC will ensure that that the actions. systems modelling, hosting and latest thinking and broadest levels of Establishing and promoting a culture support. expertise are available to support and of adaptive management requires the inform land and fire management investment and support of programs activities. in modelling, prediction-making, monitoring, evaluation, knowledge management and learning. Victoria’s fire agencies have a good basis built through a culture of debriefing at operational and community levels. This culture will be strengthened and extended through specialist units, broader staff commitment and inclusion of the community.

Photos: clockwise from top left – DSE; Nigel Peters/DSE; Tim Sanders/vicforests; DSE. 31 Figure 18: 365 day bushfire management

Winter Spring Summer Autumn June July August September October November December January February March April May

Preparedness Debrief Response Debrief Fire Readiness Media & Community Engagement

Recruitment Training Deployment PFF

Workforce Training & Reaccreditation Workforce Training & Reaccreditation

Planned On Ground Site Preparation Planned Burning Burning

Media Communications Media Communications Fire Operations Plan Development Community Engagement Finalisation Consultation Recovery Community Engagement

References Office of the Emergency Services Commissioner (2006) Emergency Management Manual Victoria, Melbourne: State of Victoria. Cheney, N.P. (1976) ‘Bushfire disasters in Australia, 1945–1975’, Australian Forestry, vol. 39, pp. 245–268. Department of Sustainability & Environment (2006) Code of Practice for Fire Management on Public Land, Melbourne: State of Victoria. Ellis, S., Kanowski, P. & Whelan, R. (2004) Council of Australian Governments (COAG) Inquiry on Bushfire Mitigation and Management, Canberra: Commonwealth of Australia. Esplin, B. (2003) Report of the Inquiry into the 2002–2003 Victorian Bushfires, Melbourne: State Government of Victoria. Hennessey, K., Lucas, C., Nicholls, N. Bathols,J., Suppiah, R., & Ricketts, J. (2005) Climate Change Impacts on Fire-Weather in South-East Australia, Aspendale, Victoria: Commonwealth Scientific and Industrial Research Organisation. Lane, P. (2007) Process and rule-sets for defining impact of prescribed burning on water yield and quality, Parkville: University of Melbourne. Lucas, C., Hennessy, K., Mills, G., and Bathols, J. (2007) Bushfire Weather in SoutheastA ustralia: Recent Trends and Projected Climate Change Impacts, Melbourne: Bushfire Cooperative Research Centre. Montreal Process Implementation Group for Australia (2008) Australia’s state of the Forest Report 2008, Canberra: Bureau of Rural Sciences. Smith, R. (2007) Key Issues Identified from Major Operational Reviews of Major Fires 2006/07, Melbourne: State of Victoria.

32 Abbreviations AFAC australasian Fire and Emergency Services FRV Fire Ready Victoria Authorities Council GFF general Firefighter CFA country Fire Authority IFMP integrated Fire Management Planning CRC cooperative Research Centre IMT incident Management Team DHS department of Human Services MFB Melbourne Fire & Emergency Services Board DPCD department of Planning & Community MFPP Municipal Fire Prevention Plans Development MW Melbourne Water DPI department of Primary Industries NEO networked Emergency Organisation DSE department of Sustainability & Environment PFF project Firefighter ECC emergency Co-ordination Centre PPRR prevention, Preparedness, Response and Recovery ENRC environment and Natural Resources Committee PV parks Victoria EPA environment Protection Authority WMO wildfire Management Overlay

Photos: michelle atkinsonE/dse; back cover: dse.