Fire Management.Pdf

Contents

Contents ...... i Table of Figures ...... ii Disclaimer & Acknowledgements ...... v 1. EXECUTIVE SUMMARY ...... i 2. PLACE: Congress Lands & Hopevale Township ...... 1 2.1 Climate ...... 6 2.2 Weather Tools ...... 7 Southern Oscillation Index (SOI) ...... 8 Normalised Difference Vegetation Index (NDVI) ...... 8 Forest Fire Danger Index ...... 9 2.3 Topography & Landscape ...... 11 2.4 Cultural Resources (Tourism & Sites) ...... 15 2.5 Vegetation Description of Congress Lands ...... 16 2.6 Fire History ...... 20 2.7 North Australian Fire Information (NAFI) Fire Scars 2005 – 2015 ...... 28 2.8 Cyclones & Fire ...... 33 2.9 NAFI Fire Scar Areas Analysis 2000 - 2015 ...... 34 2.10 Carbon Abatement Potential ...... 37 Bruce Wannan’s CFI vegetation class areas ...... 37 SavBAT generated woodland and heath areas ...... 37 SavBAT generated woodland areas only ...... 37 3. PURPOSE: Congress Fire Management Objectives & CYP Strategies ...... 39 3.1 Cape York Peninsula Land Use Strategy – Fire Report ...... 39 3.2 National Parks Planned Burn Guidelines ...... 40 3.3 Cape York Peninsula Fire Management Guidelines ...... 44 3.5 Cape York Sustainable Futures Fire Management Strategy ...... 53 3.6 Hopevale Aboriginal Shire Council Documents ...... 55 HVASC Shire Planning Scheme 2014 ...... 55 HVASC Local Disaster Management Plan 2013 ...... 63 3.7 Queensland Legislation Relating to Fire Operations ...... 64 4. PEOPLE: Resources Available ...... 67 4.1 Congress Rangers ...... 67 4.2 Other Volunteers ...... 68 4.3 Congress Fire Equipment Preparedness ...... 68 4.4 CEO Responsibilities ...... 69 4.5 Ranger Responsibilities ...... 69 4.6 Hopevale Ranger Coordinator/Senior Ranger Responsibilities ...... 69 4.7 Fire Management Operational Folders ...... 70 4.8 Training Requirements ...... 71 5. PLAN: Fire Operational Boundaries (Sectors) and Fire Management Intent Zones (Regimes) - Bringing It All Together ...... 72 5.1 Fire Management Zoning ...... 72 5.2 Fire Operational Boundaries (Sectors) ...... 73 5.3 Fire Management Intent Zones A - E ...... 73 6. STRATEGIC RECOMMENDATIONS FOR PLAN IMPLEMENTATION ...... 80 6.1 Commence Prescribed Burning Regime ...... 80 6.2 Further Training for Hopevale Rangers ...... 80 6.3 Construct Hopevale Fire Trail ...... 80 6.4 Community Consultation ...... 80 6.5 Wildfire Risk Assessments for Congress Blockholders ...... 80 6.6 Establish Fire & Biodiversity Monitoring Plots...... 80 6.7 Produce Hopevale Rangers Fire Field Guide ...... 81 Website Resources ...... 82

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Table of Figures

Figure 1: Traditional Guugu Yimithirr Seasonal Calendar ______3 Figure 2: Congress boundary, blockholders, roads, tracks, watercourses & mine lease area ______4 Figure 3: Congress Lands property - Lot 35 on Plan SP 232620 ______5 Figure 4: BoM Monthly Rainfall Data Summary Statistics - Cape Flattery Silica Mine post 1975 ____ 6 Figure 5: BoM Monthly Rainfall Data Summary Statistics - Hopevale post 1951 ______6 Figure 6: Mean Monthly Maximum Temperatures (C) - Cape Flattery ______6 Figure 7: Mean Monthly Minimum Temperatures (C) - Cape Flattery ______6 Figure 8: Variation in climate over CYP affects fire behaviour between four sub-regions ______7 Figure 9: NDVI Map for Queensland April 2016 ______9 Figure 10: McArthur Forest Fire Danger Meter Mark 5 is an important fire management tool ______10 Figure 11: Hopevale Congress 1:250,000 Topographic Map ______12 Figure 12: Hopevale Congress 1:100,000 Topographic Map ______13 Figure 13: Hopevale Congress Digital Elevation Model showing clear landscape-scale features ___ 14 Figure 14: Identified Cultural & Fire Sensitive Places in Congress Lands ______15 Figure 15: National Parks Fire Vegetation Groups for Congress Lands ______18 Figure 16: Indicative CFI Vegetation Classes for Congress Lands (Bruce Wannan DNRM) ______19 Figure 17: SavBAT automated vegetation classes for Congress Lands ______20 Figure 18: Fire Frequency for Congress Lands 2000 - 2015 ______22 Figure 19: Late Dry Season (after 1 August) Fire Frequency for Congress Lands 2000 – 2015 ____ 23 Figure 20: Year Last Burnt for Congress Lands 2000 - 2015 ______24 Figure 21: Year Last Burnt for Congress Lands (NAFI) ______25 Figure 22: Late Dry Season (post 1 August) Fire Frequency in Congress Lands 2006 - 2015 _____ 26 Figure 23: Early Dry Season (pre 1 August) Fire Frequency in Congress Lands 2006 - 2015 _____ 27 Figure 24: 2005 NAFI Map ______28 Figure 25: 2006 NAFI Map ______28 Figure 26: 2007 NAFI Map ______29 Figure 27: 2008 NAFI Map ______29 Figure 28: 2009 NAFI Map ______30 Figure 29: 2010 NAFI Map ______30 Figure 30: 2011 NAFI Map ______31 Figure 31: 2012 NAFI Map ______31 Figure 32: 2013 NAFI Map ______32 Figure 33: 2014 NAFI Map ______32 Figure 34: 2015 NAFI Map ______33 Figure 35: Map showing area highlighted for NAFI Fire Scar Areas Analysis 2000 - 2015 ______34 Figure 36: Average Monthly Burnt Areas 2000 – 201 ______34 Figure 37: Fire Scar Area (sq km) by Year ______35 Figure 38: Year Last Burnt 2000 - 2015 NAFI Google Earth ______35 Figure 39: Years Since Burnt 2000 - 2009 NAFI Google Earth ______36 Figure 40: Years Since Burnt 2006 - 2015 ______36

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Figure 41: Approximate Grass Curing Rates for Cape York Peninsula sub-regions ______42 Figure 42: Cape York Peninsula Vegetation Types (National Parks Planned Burn Guidelines) ____ 43 Figure 43: Relevant sections of the CYP Fire Management Guidelines (pages 45 – 52) ______52 Figure 44: Cape York Sustainable Futures CYP Proposed Fire Sub-Regions ______54 Figure 45: Bushfire Hazard (PO8) Overlay Code Description from HVASC Planning Scheme _____ 57 Figure 46: Bushfire Hazard (PO8) Overlay Map from HVASC Planning Scheme ______58 Figure 47: Environmental Significance (MSES) Overlay from HVASC Planning Scheme ______59 Figure 48: Matters of State Environmental Significance (MSES) for the Congress lands ______61 Figure 49: HVASC Planning Scheme Strategic Framework Map ______62 Figure 50: Hopevale Bushfire Risk Register - Annex B, HVASC Local Disaster Management Plan _ 65 Figure 51: Hopevale Township Key Blockholders ______61 Figure 52: Congress Blockholders Map 1 ______62 Figure 53: Congress Blockholders Map 2 ______63 Figure 54: Fire Management Plan Implementation Requires a Team Effort ______67 Figure 55: Suggested Accredited Training Units of Competency ______71 Figure 56: Fire Operational Boundaries (Sectors) in Congress Lands ______76 Figure 57: Composite (Aggregated) Sectors in Congress lands ______77 Figure 58: Composite Management Intent Zones with Prescribed Fire Regimes ______78 Figure 59: 2016 Planned Burns for Congress Lands ______79

Congress Fire Management Plan – Balkanu Cape York Development Corporation

This Fire Management Plan applies to the Congress lands and the SCOPE Hopevale township and was produced by Tropical Forest Tree Pty Ltd and funded by Balkanu Cape York Development Corporation Pty Ltd. COMMENCEMENT 01/05/2016 v1 NEXT REVISION 30/01/2017 DATE & DATE VERSION OWNER Terry Piper AUTHOR Daryl Killin REVISION REVISION CHANGES STATUS REVIEWED / DATE # APPROVED 26/06/2016 1.0 Initial Draft document Reviewed Chris Roberts 10/07/2016 2.0 Final Plan Pending Terry Piper

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Disclaimer & Acknowledgements

We would like to acknowledge the Traditional Owners of the Congress lands, and their elders past and present.

Special thanks to Balkanu staff Tom Hamilton for map production and attendance at the May workshop with Hopevale rangers, and also Chris Roberts for his support and prior work in the area of fire management planning for the community.

This Fire Management Plan has been developed by Daryl Killin of Tropical Forest Tree Pty Ltd explicitly for use by Balkanu Cape York Development Corporation Pty Ltd. Further distribution is entirely at the discretion of Balkanu.

The Plan seeks to provide direction in terms of progressing a proactive fire management regime for the Congress lands and Hopevale township.

Although the Plan has been prepared in good faith, Tropical Forest Tree takes no responsibility for any consequences arising from implementation of any of its recommendations. This document does not constitute financial or legal advice.

Tropical Forest Tree (www.tropicalforesttree.com ) is a professional forestry, fire and carbon project management consultancy based in Cairns, Queensland, Australia.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

1. EXECUTIVE SUMMARY

This fire management plan for the Congress lands is composed of four parts, comprising the “4Ps” of fire management:

1. PART 1 – PLACE: Congress Lands & Hopevale Township 2. PART 2 – PURPOSE: Fire Management Objectives & CYP Strategies 3. PART 3 – PEOPLE: Resources Available 4. PART 4 – PLAN: Fire Management Operational Boundaries (Sectors) & Fire Management Intent Zones

Part 1 of the plan (PLACE) gives a brief overview of the Traditional Owners (TOs) followed by a detailed physical description of the Congress lands, its vegetation types, climate, fire history and carbon abatement potential. The town of Hopevale is described from a community asset perspective.

Part 2 of the Plan (PURPOSE) outlines the fire management strategies that exist for the Cape York Peninsula (CYP) region and the fire management objectives specific to the Congress lands.

Part 3 of the plan (PEOPLE) lists the resources (people and other resources) that are available to implement the plan, the neighbours to the Congress lands and any requirements for notification.

Part 4 of the plan (PLAN) outlines which operational boundaries (sectors bounded by control lines) and fire management intent zones are applicable to the Congress lands, and also outlines proposed prescribed burning activity.

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Congress Fire Management Plan – Balkanu Cape York Development Corporation

2. PLACE: Congress Lands & Hopevale Township

The Congress lands near Hopevale, Queensland, were handed back to the 13 clan groups (Binthi, Buurnga, Dharrpa, Dingaal, Gamaay, Gulaal, Nhaatha, Nguymbaarr Nguymbaarr, Nguurruumungu, Nugal, Thanil, Thiithaarr, Thuubi) of the Thubi Warra Traditional Owners by the Hopevale determination of December 2007. Hopevale Congress of Clans Registered Native Title Body Corporate (RNTBC) administers the land on behalf of Traditional Owners.

Hopevale township has a population of 1500 and is situated 46km northwest of Cooktown along the Endeavour Valley Road, located in a valley surrounded by tropical native bushland, mountain ranges, pristine coastal plains and diverse flora and fauna (HVASC Economic Strategy 2014-2017).

Hopevale rangers are working hard to develop a better understanding of and apply local traditional fire practices, as quoted below from their website :

“There were very strict rules about fire in old people’s time because fire is dangerous in the wrong place at the wrong time and could destroy country and minya and bush tucker. It can hurt the land and leave it weak before the big rains that can wash soil and dirt into the sea which can also cause problems for sea grass and then ngawia and girrbithi. Fire has special purposes and is also part of culture and should not be disrespected by anyone who does not understand what they are doing.

Working with fire is very very complicated for us now but the old people knew exactly what to do, and who should do it. They could read the country and know when certain countries were last burnt and if they needed to do it again and where fires would stop. The rangers are talking to our remaining elders about that knowledge

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2 and want to apply it to country more like the old way but with some modern day additions.”

The Guugu Yimithirr (local indigenous language) elders have prepared a seasonal calendar (Figure 1) to guide this process, along with inputs from contemporary fire management techniques (obtained with permission from Alberta Hornsby*).

The ‘time to burn’ season is traditionally known as Danyjiin, a time when the winds are east to southeast, the temperature is cold and the environment has dried out. Fires at this time of year went out with the cool of the night and persistent dew present in the early morning assists with the regeneration of young tree seedlings, which are released from competition with native grasses.

Although Danyjiin season occurs in the months of June and July, after Walburr and before Wungarr, as each year is different from the last, the timing of early (cool) burning will also vary year to year. Note care with fire might need to occur in areas with yams present as they also appear at this time.

*Some Hopevale rangers have pointed out errors in language with this version of the calendar.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 1: Traditional Guugu Yimithirr Seasonal Calendar

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 2: Congress boundary, blockholders, roads, tracks, watercourses & mine lease area

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 2 shows the gazetted Congress lands boundary, aerial imagery, roads, tracks, watercourses, silica mine lease area, and the ‘blockholders’ leases (hatching).

The Congress lands real property (RP) description is Lot 35 on Plan SP 232620 (Figure 3). The land area is managed by Congress, the Registered Native Title Body Corporate (RNTBC). The Congress land (the property) occupies 109,830 hectares, excluding the township of Hopevale, which is managed by Hopevale Aboriginal Shire Council (HVSAC).

Figure 3: Congress Lands property - Lot 35 on Plan SP 232620

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.1 Climate Rainfall and temperature data taken from the Bureau of Meteorology (BoM) website:

J F M A M Jn Jl A S O N D Annual Mean 296.2 313.6 263.3 201.8 90.1 48.1 36.5 22.5 8.7 11.3 57.4 166.6 1532.6 Lowest 60.4 34.3 15.8 15.6 0.0 0.6 3.2 0.2 0.0 0.0 0.0 20.4 998.1 5th 73.2 35.3 38.7 28.3 10.3 9.7 3.7 0.4 0.0 0.0 0.9 22.2 1128.9 percentile

10th 96.9 54.2 59.8 33.9 29.5 10.6 9.6 0.9 0.1 0.0 2.5 29.2 1190.9 percentile Median 218.4 303.0 267.0 131.7 60.3 39.2 36.5 20.0 5.8 5.4 27.5 130.6 1515.3 90th 538.7 544.9 468.7 540.8 196.6 96.9 67.8 44.7 18.5 30.1 139.1 382.7 1830.0 percentile 95th 715.8 623.2 504.2 615.0 288.3 118.9 72.8 62.8 23.6 39.7 246.1 525.6 2283.1 percentile Highest 869.1 876.1 571.7 658.2 409.8 170.2 103.8 92.8 49.4 55.0 395.6 626.6 2318.3 Figure 4: BoM Monthly Rainfall Data Summary Statistics - Cape Flattery Silica Mine post 1975

J F M A M Jn Jl A S O N D Annual Mean 359.0 366.7 410.7 223.6 73.6 40.7 25.6 22.5 15.6 19.3 69.4 159.6 1770.7 Lowest 56.6 24.4 29.8 16.8 1.6 0.2 0.0 0.0 0.0 0.0 0.0 3.0 696.9 5th 95.1 57.7 81.3 35.2 7.8 4.9 1.0 0.0 0.0 0.0 3.5 14.3 981.6 percent 10th 120.9 157.7 114.2 62.6 13.0 5.5 4.1 1.1 0.0 0.0 4.9 25.9 1228.3 percent Median 318.8 341.8 383.0 147.4 59.5 33.6 20.8 13.6 8.0 9.1 43.9 99.8 1686.4 90th 636.3 605.4 701.0 496.8 146.7 89.8 55.2 50.0 38.6 50.9 174.4 346.3 2366.0 percent 95th 681.0 669.7 839.3 583.5 173.1 106.8 62.9 60.6 56.3 55.3 249.7 434.2 2536.8 percent Highest 1137.9 779.7 1237.5 981.3 251.5 207.6 87.9 122.2 95.5 139.2 564.7 853.4 3239.8 Figure 5: BoM Monthly Rainfall Data Summary Statistics - Hopevale post 1951

J F M A M Jn Jl A S O N D Annual

Lowest 31.3 30.6 29.8 29.1 27.3 25.6 25.1 26.6 28.0 29.3 31.1 31.8 29.3 Highest 32.9 33.2 31.8 30.8 29.3 28.0 27.9 28.3 30.0 31.0 33.0 33.4 30.3 Figure 6: Mean Monthly Maximum Temperatures (C) - Cape Flattery

J F M A M Jn Jl A S O N D Annual

Lowest 24.0 24.0 24.1 23.8 22.1 19.6 19.8 19.3 21.4 21.8 23.7 24.3 22.9 Highest 25.4 25.2 25.2 24.9 23.9 22.8 22.7 22.7 24.4 24.6 24.9 25.9 24.0 Figure 7: Mean Monthly Minimum Temperatures (C) - Cape Flattery

The Congress lands have a tropical climate with hot, moist summers and warm, dry winters. Rainfall is highly seasonal, with most falling during the period December to March. Unlike western CYP, the Congress lands experience more winter rainfall and higher humidity levels that keep the country moister for longer after the wet season.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 8: Variation in climate over CYP affects fire behaviour between four sub-regions

2.2 Weather Tools The Bureau of Meteorology (BoM) MetEye http://www.bom.gov.au/australia/meteye/ is an excellent source for weather data and maps, including latest weather and forecasts for temperature, rainfall, winds, waves, storms, frost, humidity and forest fuel dryness factor.

The rate of spread of a fire is directly related to weather conditions. Hopevale rangers need to develop skills in understanding weather and its effect on fire behaviour, making sure fire preparedness arrangements match expected conditions. This is particularly important during suppression work when tactical decisions have to be made and the safety of staff is at risk.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Southern Oscillation Index (SOI)

Seasonal outlooks provided by the BoM are based on Southern Oscillation Index (SOI) and other factors such as sea surface temperatures. The SOI is a measure of the pressure difference between Darwin and Tahiti.

Sustained negative values of the index (> minus 8) are indicative of an El Nino event. These negative values are usually accompanied by a sustained warming of the central and eastern tropical Pacific Ocean, a decrease in the strength of the Pacific Trade Winds and a reduction in winter and spring rainfall over eastern Australia and the Top End.

Conversely, sustained positive values in the SOI (> plus 8) area typical of a La Nina event. They are associated with the stronger Pacific Trade Winds and warmer sea temperatures in north Australia. This gives an increased probability of a wetter than normal season in eastern and northern Australia.

SOI outlooks are provided on a 1-3 monthly basis and can assist Hopevale rangers to understand future weather patterns, which may be of assistance in planning fire management operations. The BoM Climate and Past Weather is also an excellent resource - http://www.bom.gov.au/climate/.

Normalised Difference Vegetation Index (NDVI)

A useful BoM product is the Normalised Difference Vegetation Index (NDVI) mapping facility . This is made from the United States NOAA satellite data and it gives an approximation of the “green-ness” of the vegetation (Figure 9).

Map outputs include monthly, 3-monthly and 6-monthly assessments and this can assist with planning early burning in general. However, the map is for the whole of Queensland, which may limit its application in Hopevale. It can however indicate how green the region is looking is general.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 9: NDVI Map for Queensland April 2016

Forest Fire Danger Index

Fire Danger Meters have been created to assess bushfire conditions, using common key parameters can be read using the Kestrel Weather Meter. There are two main Australian fire indices: the Forest Fire Danger Index (FFDI) and the Grassland Fire Danger Index (GFDI). Whereas FFDI uses a Drought Factor, the GFDI uses a Fuel Curing Factor. Both indices rise with increase in temperature and wind speed, and also rise with decrease in relative humidity and soil moisture.

The Forest Fire Danger Index (FDI) rates how easily a fire will burn and gives fire practitioners an important predictive tool of how fire will behave under known weather conditions. An index value of 1 is the lowest and means that fire will not burn and an index value of 100 means that a fire will race along in a totally uncontrollable fashion.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

The Forest FDI assumes a fire burning in high eucalypt forest with 12.5 tonnes per hectare of fuel (combustible material less than 6mm in diameter) on level to undulating ground.

The McArthur Forest Fire Danger Meter Mark 5 (http://www.firebreak.com.au/forest- 5.html ) is a JavaScript program that calculates values online and uses the following weather variables measured by the Kestrel (or similar instrument): temperature, relative humidity (RH), wind speed fuel load, and also drought factor and ground slope. To give two extremes from the McArthur FDI:

A temperature of 30°C, RH of 25%, wind speed of 15 km/hr, fuel load of 25 tonnes/ha, drought factor of 10 and ground slope of 5° gives a Forest FDI of 20 HIGH, a flame height of 12m, spotting distance of 1.7 km and Rate of Spread (ROS) of 870 metres per hour.

A temperature of 25°C, RH of 70%, wind speed of 5 km/hr, fuel load of 15 tonnes/ha, drought factor of 5 and ground slope of 5° gives a Forest FDI of 1 LOW, a flame height of 0.94m, spotting distance of 0 km and Rate of Spread (ROS) of 40 metres per hour.

A rule of thumb to use for Forest FDI is that values in the range of 5 – 12 are the best times to light a fire, although some experience is required when using this model.

Figure 10: McArthur Forest Fire Danger Meter Mark 5 is an important fire management tool

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.3 Topography & Landscape

The Congress Lands are made of two distinct landforms: i) coastal lowland heathland-dominated plains with wetlands and sand ridges, and ii) elevated granite ridges dominated by woodlands and small pockets of refugial rainforest sheltered by aspect. Remnant vegetation occurs throughout the area, with very high natural and cultural landscape values.

For much of the dry season, strong predominant south-easterly winds from the ocean persist and can push any late season fires that start in the south-eastern corner towards the uplands.

Critical firebreaks include the road from Hopevale to Elim Beach, and the McIvor River Road. Proactive early burning on the southern sides of these roads will assist in establishing a buffer to prevent spread of damaging late dry season wildfires.

Figures 11 and 12 show topographical maps at 1:250,000 and 1:100,000 scale respectively.

Figure 13 is a digital elevation model that shows clearly how Hopevale township and most of the blockholders are nestled in a valley between ridges, meaning that fire is an ongoing risk that must be managed.

Due to landscape features, the Congress lands burn less often than western areas of Cape York Peninsula, due to higher rainfall quantities and frequencies in both the monsoon and the cooler months. The Great Dividing Range mountains trap moisture generated from the prevailing southeasterly winds coming off the ocean.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 11: Hopevale Congress 1:250,000 Topographic Map

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 12: Hopevale Congress 1:100,000 Topographic Map

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 13: Hopevale Congress Digital Elevation Model showing clear landscape-scale features

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.4 Cultural Resources (Tourism & Sites)

Figure 14: Identified Cultural & Fire Sensitive Places in Congress Lands

Congress Fire Management Plan – Balkanu Cape York Development Corporation

There are four identified cultural tourism sites sensitive to impacts from late season fires (Figure 14): • Willie Gordon’s (Guurrbi) Cultural Tours (http://guurrbitours.com ) • Dreaming Track • Elim Beach & Coloured Sands • Old Cape Bedford Mission site

In the case of Guurrbi Tours, this area will require burning every few years but this should be done in consultation with Willie Gordon or his representative, so smoke from the fires does not damage any cave paintings or other sacred sites. Both the Dreaming Track and Old Cape Bedford Mission site need to be assessed annually to determine if preventative measures are required to protect them from wildfires. This could include early burning around them to create buffers of burnt zones.

2.5 Vegetation Description of Congress Lands

The Congress lands are characterised by a diverse vegetated landscape, ranging from lowland heath and coastal wetland communities in the east, to upland woodland with rainforest patches in the west. There are over 70 Regional Ecosystem (RE) vegetation types represented in the area.

Of particular importance to note is that the Congress lands contain a number of Regional Ecosystems (REs) with endangered, near threatened or vulnerable status. With high diversity of sedges, a rare (Queensland) population of Eucalyptus phoenicea and others with high numbers of endemic species, conservation of these niche ecosystems is vital.

There are various methodologies for mapping vegetation in Queensland. In this plan we have made attempts to simplify the mapping but it should be noted that this does not infer that small patches of sensitive vegetation should be ignored or devalued. It is simply a method of reducing vegetation types down to a manageable level for operational purposes.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 15 shows the National Parks Fire Vegetation Groups that breaks the many REs down into ten aggregated vegetation types (plus water to make 11). Importantly, this map shows the rainforest patches that are crucial to conserve and must not be burnt. Early burning around these areas will reduce fire risk in the late dry season of October/November.

This map has been further simplified by Bruce Wannan (from DEHP) into the five different vegetation types described in the Emissions Reduction Fund (ERF) savanna burning methodology (Figure 16):

• Mixed Open Forest (hOFM); • Mixed Woodland (hWMI); • Woodland Hummock (hWHu); • Shrubland Hummock (hSHH); and • Ineligible Vegetation (primarily grassland and tea tree swamps).

Figure 16 shows the coastal plains being dominated by shrubs (heath), with the valleys being Woodland Mixed and the upland ridges being Woodland Hummock.

Figure 17 shows the three vegetation types used by the Savanna Burning Abatement Tool (SavBAT - http://savbat2.net.au/#/welcome ) for the Congress lands: High Woodland with Mixed Grass and High Shrubland (Heath) with Hummock Grass.

The main purpose of all of the vegetation analysis is to remind that there are multiple ways of categorising vegetation for the purposes of fire management, at different scales from extremely complex to simple, depending on the parameters chosen. Note this does not infer that simple management techniques can be applied to fire.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 15: National Parks Fire Vegetation Groups for Congress Lands

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 16: Indicative CFI Vegetation Classes for Congress Lands (Bruce Wannan DNRM)

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 17: SavBAT automated vegetation classes for Congress Lands

2.6 Fire History

Figures 18 – 40 have all been produced using the reporting functions of the North Australian Fire Information (NAFI) website found at http://www.firenorth.org.au/nafi3/ All Hopevale rangers should become familiar with the NAFI mapping resources as they are the primary source of information for the fire management plan.

NAFI fire scars give an overview of past fire history and can show where the greatest risk of fire comes from. However, it should be noted that NAFI relies on clear skies to record accurate fire activity, and the Congress lands often have cloudy conditions. So the NAFI records are not perfect, but the satellite used passes twice a day.

Analysis of the annual NAFI firescars (Figures 24 – 40) shows there are some clear trends in the fire history of the Congress lands:

• The wet heathlands located from Morgan’s Landing to Cape Flattery do not burn at all, possibly due to the high water table and the sparseness of the vegetation type (however heathland may burn in extreme conditions); • The upland woodland ridges appear to burn once every 3-7 years;

Congress Fire Management Plan – Balkanu Cape York Development Corporation

• Late season “hot spots” of fire activity occur around 3 main areas – Mt Unbelievable in the southeast, the McIvor River (both north and south) and the area to the east and southeast of the Hopevale township. Once fires start in these areas, they spread and are hard to contain; • Fire activity is strongly fanned by the predominant south-easterly winds; • The late dry season 2014 fire was relatively large in area, burning almost a quarter of the Congress lands. This fire could be considered to be rare but provides a valuable lesson regarding the need for an ongoing proactive fire management regime; • Fires can also threaten the Congress lands from the west, coming down from the uplands; • Early burning may prove difficult until August in most years, but fire in this period is still preferable to hotter fires in the October to November period.

The NAFI reporting site (known as InfoNet) has a series of report generation options, including fire history and fire scars by year for any property, and these reports have been generated for the Congress lands. Figures 35 – 37 show the variation in area covered by the NAFI fire scars for the highlighted area (note this area includes areas outside the actual Congress lands boundary).

Approximately 10% of the Congress lands burn each year but 90% of these fires are occurring in the most severe weather months of September to December. Every few years late season fires burn large areas of the Congress lands (eg. 2001, 2009 and 2014). It is these ‘extreme’ fire events that this plan seeks to reduce, in occurrence and severity.

Figures 38 – 40 show the Congress lands NAFI fire scars as Google Earth kml files (downloadable) and these are a good way for Hopevale rangers to map fires.

Landsat imagery is a more accurate way of measuring fire activity, but the satellite involved only passes over every 16 days, so a lengthy time passes between images.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 18: Fire Frequency for Congress Lands 2000 - 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 19: Late Dry Season (after 1 August) Fire Frequency for Congress Lands 2000 – 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 20: Year Last Burnt for Congress Lands 2000 - 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 21: Year Last Burnt for Congress Lands (NAFI)

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 22: Late Dry Season (post 1 August) Fire Frequency in Congress Lands 2006 - 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 23: Early Dry Season (pre 1 August) Fire Frequency in Congress Lands 2006 - 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.7 North Australian Fire Information (NAFI) Fire Scars 2005 – 2015

Figure 24: 2005 NAFI Map

In 2005 there were quite a few late season fires but they were relatively isolated and didn’t spread far or join into one large fire.

Figure 25: 2006 NAFI Map

In 2006, the south-western corner of the Congress lands was hit by a large late season fire in the upland woodlands and the valleys in the southwestern portion.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 26: 2007 NAFI Map

In 2007, there was a small amount of early burning around Connors Knob, and late season fires south of Mt Baird; the McIvor River stopped these fires.

Figure 27: 2008 NAFI Map

In 2008, late season fires started west of Hopevale and burnt in a north-westerly direction.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 28: 2009 NAFI Map

In 2009 a large area burnt late around Hopevale and south of the McIvor River.

Figure 29: 2010 NAFI Map

In 2010, there were no late season fires as it was a wet year with October rainfall. This infers that there was extra (unburnt) fuel available for the following year.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 30: 2011 NAFI Map

In 2011, significant areas were burnt late, with fire again heading west from Hopevale township and north to be stopped by the McIvor River.

Figure 31: 2012 NAFI Map

In 2012, late fires hit Connors Knob, and also the range west of McIvor River Road.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 32: 2013 NAFI Map

In 2013, the coastal plain west of Elim Beach burnt late, and a fire that started at Mt Unbelievable was pushed northwest by the predominant southeasterly winds.

Figure 33: 2014 NAFI Map

In 2014, a large late season fire again started in the south-eastern corner and burnt out all of the country north of the Hopevale township and continued into the uplands.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 34: 2015 NAFI Map

In 2015, the Mt Piebald area was burnt out late, and the road to Elim Beach stopped another fire from travelling further.

2.8 Cyclones & Fire

Local anecdotal evidence suggests the severe cyclone season of 2014 may have added to the fuel loads that resulted in such a large and devastating late dry season wildfire in 2014; this is a reasonable assumption. Cyclone Ita was a slow moving system and resulted in vast swathes of natural forest areas losing up to two-thirds of their canopy cover.

There is no doubt that cyclones substantially increase coarse and fine fuel loads and early (cool) burning in the months following cyclones should be considered to lower the risk of later larger fires.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.9 NAFI Fire Scar Areas Analysis 2000 - 2015

Figure 35: Map showing area highlighted for NAFI Fire Scar Areas Analysis 2000 - 2015

Figure 36: Average Monthly Burnt Areas 2000 – 201

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 37: Fire Scar Area (sq km) by Year

Figure 38: Year Last Burnt 2000 - 2015 NAFI Google Earth

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 39: Years Since Burnt 2000 - 2009 NAFI Google Earth

Figure 40: Years Since Burnt 2006 - 2015

Congress Fire Management Plan – Balkanu Cape York Development Corporation

2.10 Carbon Abatement Potential

Bruce Wannan’s CFI vegetation class areas

% project area burnt in early dry season (% EDS) % project area 0% 10% 20% 30% 40% burnt late dry season (% LDS) 0% 4339.84 2654.72 969.61 0 0 10% 1050.76 0 0 0 0 20% 0 0 0 0 0 30% 0 0 0 0 0

SavBAT generated woodland and heath areas

% project area burnt in early dry season (% EDS) % project area 0% 10% 20% 30% 40% burnt late dry season (% LDS) 0% 3980.49 2220.75 461.01 0 0 10% 602.68 0 0 0 0 20% 0 0 0 0 0 30% 0 0 0 0 0

SavBAT generated woodland areas only

% project area burnt in early dry season (% EDS) % project area 0% 10% 20% 30% 40% burnt late dry season (% LDS) 0% 3374.85 2650.39 1925.93 1201.46 477 10% 1850.55 1126.09 401.62 0 0 20% 326.25 0 0 0 0 30% 0 0 0 0 0

Congress Fire Management Plan – Balkanu Cape York Development Corporation

The carbon abatement potential (Australia Carbon Credit Units or ACCUs) for the Congress lands was explored, using 3 different scenarios: i) Bruce Wannan’s four vegetation classes (Figure 16); ii) SavBAT woodland and heath areas combined (green and yellow areas in Figure 17) and iii) SavBAT woodland areas only (green only areas in Figure 17).

The rule of thumb for early savanna burning is that you can expect to abate roughly 40% of your “ground zero” value (highlighted in yellow). This means that an early burning Emissions Reduction Fund (ERF) project could expect a long-term annual average production of around 1,350 to 1,735 ACCUs per year.

With current ERF auction prices at $10 per tonne CO2-e, this equates to $13,500 to $17,350 per year for a carbon project on the Congress lands. Carbon projects require at least $15,000 operating costs per year and have additional set-up and project compliance costs, so early burning for carbon credits is not an option based on the current methodologies available.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

3. PURPOSE: Congress Fire Management Objectives & CYP Strategies

Part 2 of the Plan (PURPOSE) outlines some of the fire management strategies that exist for the Cape York Peninsula (CYP) region. These strategies give context to the Congress plan.

The 5 objectives of the Hopevale Congress Fire Management Plan are: 1. To protect life and property on Congress lands, Hopevale township and neighbouring lands. 2. To conserve natural and cultural assets via the proactive use of fire: “looking after country”. 3. To break up the country with early dry season cool burns so as to reduce late season fires. 4. To broaden the fire management skills set of the Hopevale ranger group via training. 5. To seek sufficient funding for aerial incendiary work to complement on-ground operations.

The challenge facing Congress is to attain these objectives using fire in a proactive manner, working cooperatively with other key stakeholders such as the Council, local Rural Fires brigades and the many (and increasing) Congress Blockholders.

3.1 Cape York Peninsula Land Use Strategy – Fire Report

Many reports give an overview of the role of fire and fire management on Cape York Peninsula (CYP). Whilst the purpose of this plan is to focus on the Congress lands, it is important to appreciate the regional fire management context. During the 1990s, the Cape York Peninsula Land Use Strategy (CYPLUS) produced a series of reports on land management issues. The CYPLUS Fire Report gave insight into the differences between the factors that affect fire behaviour (weather variables such as temperature, relative humidity, evaporation, wind speed and direction, fuel types and loads), and natural and human ignition sources) between CYP and the Northern Territory, where most fire research is carried out.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Some key themes in the CYPLUS report to understand when it comes to fire management on Cape York Peninsula:

• The cut-off date used for the determination of late dry season fires is on or after 1 August, defined by legislation under the federal government’s Emissions Reduction Fund (ERF). • Although grasses are often the fuel that carries a fire, leaf-drop by eucalypts plays an important part in late dry season fire behaviour by adding to existing fuel loads, or replacing burnt areas with a new layer of fuel; • Differences in vegetation types across CYP are greater than other areas of northern Australia and mean that fire behaviour can change over relatively short distances; • Weather conditions vary greatly both within and between years, meaning that there is always an unpredictable element to fire management; • Although lightning strikes account for some late season fires, most fires are lit by either land managers or people traversing the landscape; • The presence of morning dew plays a major role in fire management on CYP in the months of May-June. Without dew, fires can continue through the night and flare up the next day; • Early burning of woodland savanna country can create a mosaic of burnt patches that impede late dry season fires and therefore reduce their intensity and impact on vegetation, although this is highly dependent on their ‘patchiness’ and relative coverage of the landscape; and • Good fire managers are always learning from the environment and the experiences of themselves and other fire practitioners, and; • Every prescribed burning operation is unique and requires planning but also flexibility to change plans once the fire has commenced.

3.2 National Parks Planned Burn Guidelines

In 2012, the Queensland Government released its Planned Burn Guidelines for CYP National Parks to reflect a change in direction towards a more active prescribed burning regime. The guidelines outline the time of year in which various sub-regions dry off, or ‘cure’ (Figure 41). Curing rates are different across various parts of the

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Cape, with a rule of thumb being southern areas cure before the northern areas, and western areas cure before the east.

The guidelines state that Congress lands occur in the region that cures around mid to late June (in an average year), however this is disputed by the author as curing can occur even later in wetter years. Relative curing rates of different areas are important to understand, noting that the duration and intensity of the wet season will vary from year to year.

Figure 42 from the Queensland Government National Parks Planned Burn Guidelines shows the various vegetation types in the Cape York bioregion. The guidelines refer to eucalypt woodland communities as having an “overstorey canopy range of 8-27m dominated by a mix of Eucalypt and Corymbia (bloodwood) species, with grasses, shrubs and smaller trees in the understorey”.

The Guidelines do raise the issue of woody thickening, which can occur when cattle graze over country that is regularly burnt early. Note there are tensions in how grass is managed between cattle grazing and burning, hence the need for a considered strategic fire management strategy.

Healthy eucalypt woodland communities on CYP should look like:

• The ground layer has mixed grasses with occasional legumes, lilies, Lomandra spp. and shrubs; • Perennial grasses are more common than annual grasses; • Young canopy species are recruiting in the understorey (enough to eventually replace the canopy) but are not extensive enough to produce shading impacts; • The forest is open and easy to walk through; • Small trees are present but they are a variety of different heights; • In areas of poorer soil, shrubs dominate grasses; and • Some trees have blackened bark, showing history of past fires.

Aerial ignition is the most efficient way to manage large areas of woodland by attempting to burn areas in the early dry season ideally over a number of months.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

This enables the variable nature of fuel loads, aspect and weather conditions to produce a series of fire scars that break up the landscape, without burning all of it (unless that is a specific management strategy). Proactive early burning reduces the threat of damage to the age class diversity of the forest cover. Aerial burning on the Congress lands would be done during the months of June through to August, depending on fuel accumulation, the previous year’s firescars, the current weather and budget and/or resourcing constraints.

Figure 41: Approximate Grass Curing Rates for Cape York Peninsula sub-regions

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 42: Cape York Peninsula Vegetation Types (National Parks Planned Burn Guidelines)

Congress Fire Management Plan – Balkanu Cape York Development Corporation

A clear indicator that country needs to be burnt early in the dry season is when there is a build-up of dead grass over a few years. The grass load is then so heavy that it collapses on itself; this can be seen clearly from the air. Another cue is when cycads have many dead fronds on them or ‘brown skirts’ develop on Xanthorrhoea spp.

It is suggested that only locals or fire practitioners with many years of experience should decide to undertake a hot burn in the storm season, and for a specific purpose. It is crucial to appreciate the relationship between fuel (grass) loads, the number and density of young saplings and the gaps in the overstorey to begin to appreciate how fire can be used as a management tool to look after country. It takes time working and living on country to gain such insight.

3.3 Cape York Peninsula Fire Management Guidelines

Produced jointly by Reef Catchments and SEQ Fire & Biodiversity Consortium , the CYP Fire Management Guidelines give an overview of fire management in various vegetation types across Cape York Peninsula. Relevant sections have been reproduced, including Moist Eucalypt Woodland, Heath, Rainforests and Wetlands.

The CYP Fire Management Guidelines have been used to inform the development of the recommended fire regimes in this plan.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 43: Relevant sections of the CYP Fire Management Guidelines (pages 45 – 52)

Congress Fire Management Plan – Balkanu Cape York Development Corporation

3.5 Cape York Sustainable Futures Fire Management Strategy

During 2012 Cape York Sustainable Futures (CYSF) commenced development of a ‘whole-of-Cape’ coordinated fire management strategy but a lack of sufficient funding hampered these efforts. The document did however propose breaking up CYP into manageable ‘sub-regions’ (Figure 44).

CYSF proposed that natural river systems or changes in landform would be used to create natural fire barriers with fire managed by sub-regional ‘clusters’ across tenures or property boundaries by a cooperative approach. This approach makes sense, as fire does not respect administrative boundaries, however it requires investment in relationship building to create the trust and support needed to make it successful.

Fire management would still be done at the property level but neighbours within the sub-regions would meet annually to review and coordinate the next dry season’s proposed prescribed burns. The CYSF Plan proposed that resources would be coordinated across CYP resulting in efficiencies and result in cost savings when compared with properties acting in isolation.

According to this strategy, the Congress lands fall within the Normanby to Endeavour River with a very high complexity of fire management requirements.

This cooperative approach has merit and sought a number of on-ground outcomes:

• A collaborative approach to fire management; • Utilising existing fire management capacity within the sub-regional clusters; • Fire management addressing multiple ecosystem outcomes; • Hazard mitigation; • Carbon accounting; • Sophisticated planning capacity; and • Provision of a fire knowledge conduit.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 44: Cape York Sustainable Futures CYP Proposed Fire Sub-Regions

Congress Fire Management Plan – Balkanu Cape York Development Corporation

3.6 Hopevale Aboriginal Shire Council Documents

The following Hopevale Aboriginal Shire Council (HVASC) documents form the basis of the Council’s position in relation to local planning priorities. Each provides information for fire management planning, and are discussed further below:

HVASC Shire Planning Scheme 2014

One of the four components of Planning Scheme strategic vision is environmental management which states “Enhancing and managing the environmental assets of the Shire; ensuring a balanced approach to the use of and protection of the natural environment for future generations.”

There are references to fire management in the HVASC planning scheme. Specific Outcome (d) under Section 3.5.5.1 on page 22 of the scheme states that “Development manages bushfire risk to human life and property”. There is also a Bushfire Hazards (PO8) Overlay Code under section 8.2.1.1 (b) that deals with assets and infrastructure (Figure 45).

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Performance Objective 8 (PO8) of the planning scheme states that firebreaks are to be established that provide a “fire trail” that separates development from hazardous vegetation via a 10m wide (4m formed) buffer, with 20m long and extra 3m wide passing bays constructed every 200m. Suitable arrangements for the maintenance of the fire trail in perpetuity with access granted via a gazetted easement for local government and QFES is recommended. Individual properties (blockholders) are also required to incorporate road access and firebreaks for fire fighting activity as part of the planning scheme approval process.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 45: Bushfire Hazard (PO8) Overlay Code Description from HVASC Planning Scheme

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Figure 46: Bushfire Hazard (PO8) Overlay Map from HVASC Planning Scheme

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Figure 47: Environmental Significance (MSES) Overlay from HVASC Planning Scheme

The HVASC Bushfire Hazard Overlay (Figure 46) shows the Council considers the greatest fire risk to be on the coastal heath areas and from the southeast-facing valleys that head towards Hopevale township.

Figures 47 and 48 outline the Environmental Significance Overlay of Matters of State Environmental Significance (MSES) from the planning scheme; “Native vegetation must be retained in a way that maintains ecological processes and the conservation of biodiversity and regional ecosystems (REs).”

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Most MSESs are wildlife habitat located along the Morgan and McIvor Rivers, south of Elim Beach and the Mt Baird area. The data is extracted from the Department of Environment and Heritage Protection environmental maps and data online resource (DEHP 2016): https://www.ehp.qld.gov.au/maps-imagery- data/online/#environmental_mapping_and_databases

Figure 49 outlilnes the Strategic Framework Map for the HVASC planning scheme, and shows the various Zones under which the Council apply the planning scheme. This indicates there are a number of “special places” (yellow stars) to note when carrying out fire activity. The details of these places needs to be clarified so that the fire management plan can support their conservation.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 48: Matters of State Environmental Significance (MSES) for the Congress lands

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Figure 49: HVASC Planning Scheme Strategic Framework Map

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HVASC Local Disaster Management Plan 2013

Page 55 of the Disaster Management Plan states that “Although there is a risk of wildfire throughout Hopevale, it is not considered to be of a level of severity which would necessitate the activation of the disaster management system to coordinate a response in relation to an outbreak. There are, however, numerous isolated farming and residential properties scattered across the area, and many of these are vulnerable to wildfire. These premises will the focus of a public awareness program in relation to wildfire safety.”( Hopevale Disaster Management Plan )

Unlike Hopevale township, the Congress lands are subject to high and very high risk of bushfires (Figure 46). This is related to the vegetation present on the Congress lands as previously described.

Any warnings or notifications in relation to fire are provided by the Queensland Fire & Rescue Service (QFES) First Officer, with the Local Disaster Management Group (LDMG) being to ensure the community is able to take appropriate action in relation to any large-scale event.

Figure 50 shows the Bushfire Risk Register of the Hopevale planning scheme. The main risk treatments proposed for the threat of wildfires are for agencies to work together to ensure training, communications and Personal Protective Equipment (PPE) are provided to Rural Fires volunteers, asbestos in buildings is safely dealt with, fuel load reduction burning is undertaken and firebreaks are both developed and maintained.

Congress blockholders need a base level of support to undertake proactive measures to reduce their risk exposure to wildfires, especially in the late dry season.

Note that the HVASC planning scheme mentions the need for a community awareness and preparedness campaign to highlight the community fire risk and to encourage individual mitigatory action. The agencies listed as responsible for this campaign are QFES, HVASC and LDMG; there is currently no mention of Congress, nor is there any nominal budget allocation.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figures 51 – 53 show all of the blockholders located around Hopevale, and on the Congress lands to the north and east of the town. Each blockholder has been given a unique code identifier (eg. M15), so that anyone communicating regarding a fire can refer specifically to the block on a map without referring to who owns the block (which can cause confusion for any newcomers).

It is recommended a comprehensive wildfire risk analysis be carried out for each of the Congress properties, addressing matters such as access, fuel loads present at certain dates, description of type of firebreaks (if any), presence of water (eg creek or tank), contact details and consent arrangements for fire lighting and fire fighting.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 50: Hopevale Bushfire Risk Register - Annex B, HVASC Local Disaster Management Plan

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Figure 51: Hopevale Township Key Blockholders

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Figure 52: Congress Blockholders Map 1

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Figure 53: Congress Blockholders Map 2

Congress Fire Management Plan – Balkanu Cape York Development Corporation

3.7 Queensland Legislation Relating to Fire Operations

The Fire & Rescue Service (F & RS) Act outlines the function and powers of the Queensland Fire and Emergency Services (QFES). It is under this legislation that permits are granted for the lighting of fires and also the mechanisms and processes for the investigation of fire-related incidents by QFES. Congress and HVASC have legal responsibilities for fire operations.

The lighting of all fires is subject to obtaining and complying with a fire permit in accordance with Section 65 of the F & RS Act. Under provisions of the Fire Management and Operations Plan (Clause 7.2), the Fire Commissioner can issue a fire permit on an annual basis (Annual Permit) but this is unlikely.

Fire management needs to involve neighbours. In order to keep their status as a Rural Fire Brigade, the Hopevale rangers must maintain training and equipment. It is desirable to communicate this fire management plan to neighbours and other parties such as Mitsubishi (silica sands mining company) and to garner local support in regard to fighting wildfires.

Note that Congress and HVASC must comply with their obligations under section 65 of the F & RS Act and take reasonable steps to notify all occupiers of adjoining land as part of the annual permit issued by QFES to light a fire on Congress lands. Key signage can advise contact details (Congress/ QFES/ neighbours/ police). Good liaison and cooperation with neighbours, other Rural Fire Brigades and State agencies, particularly the QFES, NPRSR and police, is necessary.

Throughout Queensland, the occupier of any land is required to undertake appropriate fire prevention actions on his/her land (F&RS Act, section 69) and is responsible for controlling and extinguishing fire on their land, regardless of how the fire entered the land or how it started on the land (section 67). In simple terms this means that Congress and HVASC are required to construct and maintain firebreaks, reduce fire hazards and take all reasonable steps to prevent the spread of fire from entering onto adjoining land.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

The Workplace Health & Safety (WH & S) Act applies to all workplaces & workplace activities and to everyone who may affect the health and safety of others because of workplace activities, or be affected thereby. Fire lighting and fighting can be very dangerous and Congress and HVASC have a "duty of care" at all times to all persons (as everyone else does).

All staff involved in fire management and operations must be appropriately trained and have the correct equipment to carry out all fire activities. The creation of a Fire Operations Management System with Standard Operating Procedures and other associated forms will assist Congress and HVASC to meet its WH & S obligations. It is important that all staff involved in fire operations and any external contract parties wear the prescribed Personal Protective Equipment (PPE), or else there will be issues if an incident occurs.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

4. PEOPLE: Resources Available

Part 3 of the plan (PEOPLE) lists the resources (people and other resources) available to implement the plan and identifies the requirements with respect to the relationship of all neighbours of Congress lands.

4.1 Congress Rangers There are a small group of Congress rangers who are funded until 2017:

Charmaine Bowen (Full time): QFES & SES Volunteer (FMS trained) Neville Bowen (Fulltime): QFES & SES Volunteer (FMS trained) … 2nd Officer Dustin Costello (Fulltime): QFES & SES Volunteer (FMS trained) Lawrence Jacko (Fulltime): QFES & SES Volunteer (FMS trained) Harold Ludwick (Fulltime): QFES & SES Volunteer Jarrett Yoren (Part-Time): QFES & SES Volunteer (FMS trained) Silas Gordon (Part-time)

Figure 54: Fire Management Plan Implementation Requires a Team Effort

Congress Fire Management Plan – Balkanu Cape York Development Corporation

4.2 Other Volunteers Jason Woibo: QFES & SES Volunteer (FMS trained) (Council contractor) Albert Storch: QFES & SES Volunteer (FMS trained) (Council worker) … 1st officer Ray Barret: Hopevale QFES & SES… Coordinator

4.3 Congress Fire Equipment Preparedness At the moment the current Congress equipment is:

• Stihl Leaf Blower X 1 (2013) never used • 600l Slip-on Honda pump X 1 • Drip torches X 2 (2015) used randomly as RFB have their own • Stihl Chainsaw X 3 • Trailer • Toyota ute • Toyota Troupe carrier • Swing signs (Rangers spraying, Ranger at work, Rangers burning) • High visibility work vests • Gloves • Masks

There are several ‘tricks of the trade’ when it comes to preparing for and undertaking fire operations and the Kestrel Fire Weather meter is one of them. The Kestrel website gives an overview of all aspects of using the device. This device enables the measurement of all essential fire management parameters: temperature, wind speed and direction, humidity and dew point. As a rule of thumb, fires MUST NOT be lit under these conditions: • Humidity is lower than 30% and the fuel load is high; • Average wind speed is higher than 15 km/hr (not gusts); or • Temperature is higher than 30 degrees Celcius (unless it is a storm burn)

Generally fire equipment is provided specifically for a purpose. Congress and HVASC, to ensure that fire equipment is immediately ready for use when needed, should adopt a planned maintenance schedule. Records must be kept of all training given to personnel on particular equipment. Nobody should attend a planned burn

Congress Fire Management Plan – Balkanu Cape York Development Corporation

69 operation unless they are informed of the whereabouts of all fire equipment and are competent in its use.

4.4 CEO Responsibilities Congress and HVASC CEOs have responsibilities to fire at their organisational level:

• have overall responsibility; • assess total requirement and suitability of existing equipment; • assign responsibilities and scheduling for checking of equipment and auditing of registers and any checklists; an • make any and all budget decisions regarding fire management operations to achieve the objectives of this fire management strategy

4.5 Ranger Responsibilities It is important that rangers at different levels clearly understand their role in fire equipment preparedness. Effective preparedness will only be achieved through close attention to detail. Maintain Personal Protective Equipment (PPE) and have fire bag ready at all times; and report any faulty equipment to their supervisor.

4.6 Hopevale Ranger Coordinator/Senior Ranger Responsibilities The Ranger Coordinator/Senior Ranger(s) has responsibilities in relation to fire:

• responsibility for making the final analysis of the state of equipment they will use on a fire, regardless of routine testing and checking procedures; • organise replacement of equipment on advice of write-off by qualified persons; • ensure equipment is correctly stored and loading arrangements are adequate; • arrange for vehicles to be weighed as necessary (for example, prior to the fire season when mop- up units and fire fighting equipment is fitted) to ensure they do not exceed recommended loads, and ensure that vehicle operators have sufficient information available to assist with management of load capacity; • ensure that pumps are given regular routine test runs at full pressure, and that pumps, hoses and ancillary equipment are in good condition and ready for immediate use; • bring to the attention of qualified persons any necessary repairs and indicate priority for repair;

Congress Fire Management Plan – Balkanu Cape York Development Corporation

• acquaint all supervisory rangers and others likely to be responsible for fire control in normal and emergency circumstances with the location and condition of equipment; • organise regular training and skills maintenance sessions on the operation of fire equipment for all rangers likely to be involved in its use; • arrange for inspection of all items of fire equipment at least twice a year as a matter of routine and immediately prior to commencement of the fire season; • arrange for pressure testing of all pumps and assign top priority to any necessary repairs; • arrange for write-offs of any items of equipment uneconomical to repair or of suspect reliability owing to age and advise the supervising officer immediately so that a replacement can be organised; • ensure that all ancillary equipment such as nozzles, hose spanners, suction hoses, floats and strainers, spare fuel etcetera is stored with the equipment at all times; and • note that the CEO must authorise modification of any mop-up or modular unit

4.7 Fire Management Operational Folders It is recommended that Congress and HVASC create hardcopy fire management folders with the following information to be kept in all vehicles: • Copies of this report • Laminated A4 maps from this report • Fire Danger Index and Drought Index data • Radio call signs for vehicles • Telephone numbers of all rangers (work and after hours) • Telephone numbers of neighbours • List of Fire Wardens and telephone numbers • List of possible plant (bulldozer, grader etc) operators, truck drivers etc • List of all Congress and Hopevale Shire Council employees and contractors, training competencies, addresses and phone numbers • Private hire arrangements for various items of plant and equipment such as dozers, water trucks, graders and low loaders as well as aircraft

Congress Fire Management Plan – Balkanu Cape York Development Corporation

4.8 Training Requirements

Specific Competencies

MSAPMSUP106A Work in a team

PUAFIR201B Prevent Injury PUAFIR204B Respond to Wildfire PUADEFCA005B Operate Communications Equipment PUAEQU001B Prepare, Maintain, Test Equipment PUAOPE003B Navigate in urban and rural areas PUAFIR303B Suppress Wildfire AHCFIR201A Assist Prescribed Burn PUAFIR214 Use Class A Foam in Wildfire PUAFIR209B Work safely around aircraft (full unit) MSAPMOHS100A Follow OHS Procedures

PUAFIR312B Operate aerial ignition equipment in an aircraft (full

unit)

PUAOPE015A Conduct Briefings/Debrief

PUAFIR303B Supervise Response

RIICOM201D Communicate in Workplace

FPICOR4201B Monitor Safety, Health & Env Policies OR Follow

FPICOR2205B OHS policies & procedures

PUATEA002B Work Autonomously

PUAFIR406B Develop prescribed burn plan

PUAFIR407B Conduct prescribed burn

AHCCFI509A Plan a CFI savanna burning project

Figure 55: Suggested Accredited Training Units of Competency

There are accredited Vocational Education and Training (VET) courses specifically of relevance to fire management (Figure 55) as part of an ongoing skills development program for Congress and the Hopevale rangers. These subjects link to content and assessment guidelines on www.training.gov.au .

Congress Fire Management Plan – Balkanu Cape York Development Corporation

5. PLAN: Fire Operational Boundaries (Sectors) and Fire Management Intent Zones (Regimes) - Bringing It All Together

Part 4 of the Plan (PLAN) outlines which operational boundaries (sectors with control lines) and management intent zones are applicable to the Congress lands, and also outlines the current year’s proposed prescribed burning activity.

5.1 Fire Management Zoning

Fire operational planning has many requirements: ranger and staff training, communications, fire equipment, surveillance, firebreaks, access, water supply, fuel reduction, fire fighting, logistics and management. Planning is a key element of fire management and, once undertaken, significantly reduces fire risk to Congress lands.

Planning for burning operations should be completed in February to March each year, allowing sufficient time to inform all affected blockholders, Congress ranger staff and neighbours. Most burns will generally be undertaken in the months of June through to August, depending on the seasonal conditions, fuel loads, fuel (grass) curing levels and weather conditions.

Occasionally a late prescribed burn in September may be considered if the previous wet season was prolonged and no burning could be done early, increasing the risk of country burning in the late dry season. On the odd occasion, storm burns (October to November) may be warranted following at least 30 - 50mm of rain in specific locations for specific purposes, but experienced fire practitioners should only undertake these.

All prescribed burning proposals should be approved by the Congress CEO and be carried out in accordance with any Queensland Fire & Emergency Services (QFES) fire permit conditions. Prescribed burning will be carried out by both aerial and ground ignition means at different times/places.

Strategic burning based on risk assessment is essential around infrastructure or assets such as blockholder houses and sacred sites. These areas must be burnt

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73 early and included in every annual burn program. Written consent from blockholders must be obtained before operations commence.

5.2 Fire Operational Boundaries (Sectors)

Fire operational boundaries are a practical way of identifying separate sections of the Congress lands for either fire lighting or fire fighting purposes.

Figure 56 is a map of the 31 different “Sectors” of the Congress lands that delineate important practical boundaries such as roads, tracks, rivers and creeks, and some property boundaries (which are important from a legal point of view). Figure 57 shows the 31 operational sectors aggregated into a set of “primary sectors”.

5.3 Fire Management Intent Zones A - E

The Congress Lands are subject to frequent fire, usually wildfires, often fanned by strong persistent south-east prevailing winds. Because there is low grazing pressure on the property, biomass is high, leaving more fuel available for fire consumption. Fuel can be reduced with an effective early season incendiary and ground-based prescribed burning program to reduce the intensity of these fires.

Through the development of a mosaic fire regime, late dry season fire intensity can be lessened and its rate of spread reduced. Due to the extremely dry conditions and strong winds, these fires burn hottest. Once the wet season fully commences (late December), after the early storms, the Congress lands become too wet and not conducive to fire conditions until at least June to July of the following year.

To achieve proactive fire management, the strategic management intent behind decision making must be explained. Fire Management Intent Zones show at a glance the recommended fire regime for a given area.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

The Congress lands have five management intent zones (A - E) as follows:

Figure 58 shows a composite map of the five Management Intent Zones overlaid on top of the aggregated Fire Operational Boundaries (Sectors). This is the most important map of this plan and is referred to as the Final Fire Plan Map.

The Management Intent Map can be used in conjunction with a number of other overlays on a Geographic Information System (GIS), or be laminated and written over with temporary markers in the field, including points of interest such as:

• Previous Fire Scar History • Years Since Last Burnt (Year & Month) • Planned prescribed burn areas/boundaries • Ground cover and fuel variations - aerial photos can assist with showing this • Initial and emergency meeting point(s) • Likely wind speed and direction (or predicted change) • Proposed first ignition point(s) and lighting sequence divided up into sections • Reference points for radio communication, including outside planned burn area

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• Any ground-based radio channel(s) • Important infrastructure or assets • Specific identifiable hazards • Water access points • Smoke hazard sign locations and/or traffic control locations (if required).

All maps should be a large enough scale to show not only the planned burn and project areas, but also the immediate surrounding properties in case the fire escapes outside the boundary.

Figure 59 shows the possible areas that could be burnt in the winter months of July in either 2016 or 2017, depending on resources. These areas were chosen by the Hopevale rangers at a workshop in May 2016.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Figure 56: Fire Operational Boundaries (Sectors) in Congress Lands

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Figure 57: Composite (Aggregated) Sectors in Congress lands

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Figure 58: Composite Management Intent Zones with Prescribed Fire Regimes

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Figure 59: 2016 Planned Burns for Congress Lands

Congress Fire Management Plan – Balkanu Cape York Development Corporation

6. STRATEGIC RECOMMENDATIONS FOR PLAN IMPLEMENTATION

The following seven specific strategic recommendations have been developed to aid effective implementation of the Congress Fire Management Plan. All of them are further critical activities that require new or additional funding:

6.1 Commence Prescribed Burning Regime Undertake at least three of the six identified prescribed burns described in Figure 60, which were developed by the Hopevale rangers in the May 2016 workshop.

6.2 Further Training for Hopevale Rangers Carry out further fire training and skills development for Hopevale rangers, including conducting an aerial incendiary program in 2017.

6.3 Construct Hopevale Fire Trail Fund the construction and maintenance of the Hopevale “Fire Trail” as recommended in the HVASC Planning Scheme by August 2017. This requires strong cooperation between the three key stakeholders (Congress, HVASC and QFES).

6.4 Community Consultation As outlined by the Local Disaster Management Plan (LDMP), extensive community consultation, especially with blockholders, as broad support is needed for the fire management plan to succeed. Ideally this consultation would occur in August 2016.

6.5 Wildfire Risk Assessments for Congress Blockholders Perform detailed Wildfire Risk Assessments for each of the Congress Blockholders before September 2016. This could be done as part of the community consultation and would prepare the way for the Hopevale Fire Trail to be constructed.

6.6 Establish Fire & Biodiversity Monitoring Plots A useful way to start collecting information relevant to fire management is to establish fire monitoring plots to record data and photos before and after fire activity.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

6.7 Produce Hopevale Rangers Fire Field Guide A detailed Hopevale Rangers Fire Field Guide is required to assist rangers and the general community to determine appropriate responses to various fire scenarios.

Congress Fire Management Plan – Balkanu Cape York Development Corporation

Website Resources

Aboriginal Carbon Fund – Savanna Burning http://aboriginalcarbonfund.com.au/savanna-burning/ Accredited VET Federal Government Training http://training.gov.au/Home/Tga Balkanu Cape York Development Corporation http://www.balkanu.com.au Bureau of Meteorology Climate Data Online http://www.bom.gov.au/climate/data/?ref=ftr Bureau of Meteorology MET Eye http://www.bom.gov.au/australia/meteye/?loc=QLD_FA001 Bureau of Meteorology Queensland Weather Forecasts http://www.bom.gov.au/qld/ Bureau of Meteorology Climate & Past Weather http://www.bom.gov.au/climate/ Bushfire Cooperative Research Centre (CRC) - old site http://www.bushfirecrc.com Bushfire & Natural Hazards CRC - new site http://www.bnhcrc.com.au Cape York Fire Management on Pastoral Stations http://www.firemanager.org.au/sites/default/files/resources/attachments/cyp-fireplan- complete_0.pdf Cape York NRM Fire Management http://www.capeyorknrm.com.au/program/fire-management Cape York NRM Fuel Types Baseline Carbon Mapping Portal http://maps.capeyorknrm.com.au/carbon Cape York Sustainable Futures Fire Management Project http://www.cysf.com.au/cysf-projects/35-the-cape-york-fire-management-project.html Charles Darwin University (CDU) Research Institute for the Environment & Livelihoods (RIEL) – Publications http://riel.cdu.edu.au/publications Clean Energy Regulator (CER) http://www.cleanenergyregulator.gov.au CSIRO Fire Danger Meters (Forest & Grassland FDI) http://www.csiro.au/en/Research/Environment/Extreme-Events/Bushfire/Fire-danger-meters Emissions Reduction Fund (DoE) http://www.environment.gov.au/climate-change/emissions-reduction-fund Fire Ecology & Management in northern Australia http://learnline.cdu.edu.au/units/env207/index.html Fire Trader Australia Web Store http://www.firetraderstore.com.au Forest Fire Danger Index http://www.firebreak.com.au/forest-behave.html Hopevale Aboriginal Shire Council (HVASC) http://www.hopevale.qld.gov.au Hopevale Rangers http://www.hopevale.qld.gov.au International Savanna Fire Management Initiative http://www.unutki.org/default.php?doc_id=248 My Carbon Farming http://www.mycarbonfarming.com.au NAFI Reporting Site (Project Areas loaded) http://www.ntinfonet.org.au:8080/infonet2/?ViewBBOX=141.398269,-

13.927375,142.417251,-13.295388 Normalised Difference Vegetation Index (BOM) http://www.bom.gov.au/climate/austmaps/about-ndvi-maps.shtml North Australian Fire Information (NAFI) http://www.firenorth.org.au/nafi3/ Northern Fire Manager - Resources http://www.firemanager.org.au North Australian Indigenous Land & Sea Management Alliance (NAILSMA) - Carbon Project http://www.nailsma.org.au/hub/programs/carbon- project NAILSMA Climate Change & Carbon Farming Northern Australia Education Manual http://www.nailsma.org.au/hub/resources/publication/climate-change-and-carbon-farming-northern-australia-education-manual QFES Fire Permit Application https://www.ruralfire.qld.gov.au/Using%5FFire%5FOutdoors/Obtaining%5Fa%5FPermit%5Fto%5FLight%5FFire/ Reef Catchments – Fire Resources http://reefcatchments.com.au/fire/ Rural Fire Service Queensland (QFES) https://www.ruralfire.qld.gov.au Savanna Explorer North Australia Information Resource http://www.savanna.org.au SavBAT 1 http://nafi3-dev.firenorth.org.au/savbat/ui/app/index.html#/welcome SavBAT 2 http://savbat2.net.au/#/welcome SEQ Fire & Biodiversity Consortium http://www.fireandbiodiversity.org.au Stihl BR 600 Magnum Backpack Leafblower http://www.stihl.com.au/STIHL-Products/Blowers-ShredderVacs-and- Mistblowers/Backpack-Blowers/2809-1578/BR-600-MAGNUM Stihl BR 600 Magnum Backpack Leafblower Manual http://www.stihlusa.com/WebContent/CMSFileLibrary/InstructionManuals/br-500-550-600- product-instruction-manual.pdf Stihl Chainsaw Video Instructions http://www.stihl.com.au/starting-a-stihl-chain-saw.aspx The Long Paddock (Queensland Government) https://www.longpaddock.qld.gov.au Tropical Savannas CRC – Savanna Burning Book Chapters http://savanna.cdu.edu.au/publications/savanna_burning.html