The Senate Select Committee on Agricultural and Related Industries The incidence and severity of bushfires across Australia August 2010 © Commonwealth of Australia 2009 ISBN 978-1-74229-349-3 This document was prepared by the Senate Select Committee on Agricultural and Related Industries, and printed by the Senate Printing Unit, Department of the Senate, Parliament House, Canberra. Membership of the committee Members Senator the Hon. Bill Heffernan, Chair New South Wales, LP Senator Kerry O'Brien, Deputy Chair Tasmania, ALP Senator Mary Jo Fisher South Australia, LP Senator Christine Milne (to 26 November 2009) Tasmania, AG Senator Fiona Nash New South Wales, NPA Senator Glenn Sterle Western Australia, ALP Participating members participating in this inquiry Senator Chris Back Western Australia, LP Senator the Hon. Richard Colbeck Tasmania, LP Secretariat Ms Jeanette Radcliffe, Secretary Mr Andrew Bomm, Principal Research Officer Mr Peter Short, Principal Research Officer Ms Trish Carling, Senior Research Officer Ms Lauren McDougall, Executive Assistant Ms Sophia Fernandes, Executive Assistant Ms Maria Sarelas, Executive Assistant PO Box 6100 Parliament House Canberra ACT 2600 Ph: 02 6277 3511 Fax: 02 6277 5811 E-mail: [email protected] Internet: http://www.aph.gov.au/senate/committee/agric_ctte/index.htm iii iv TABLE OF CONTENTS Membership of committee iii List of the committee's recommendations vii Chapter 1- Introduction 1 Conduct of the inquiry 1 Scope and structure of the inquiry 2 Fire in the Australian landscape 3 Bushfire management in Australia 5 State and territory government responsibilities 6 Local government responsibilities 22 Commonwealth responsibilities 22 Chapter 2 – Previous bushfire inquiries 33 Chapter 3 – Bushfire mitigation 41 Introduction 41 Fire prevention 41 Fuel reduction 46 Additional risk management approaches 88 Chapter 4 – Co-ordinating fire suppression 107 Introduction 107 Co-operation across responsible agencies 108 Local control during bushfires 112 Chapter 5 - Resources for bushfire management 119 Introduction 119 Resource priorities 119 Personnel 122 Information 131 Fire suppression infrastructure 138 APPENDIX 1 147 Submissions Received APPENDIX 2 149 Public Hearings and Witnesses Friday, 12 March 2010, Canberra 149 Thursday, 25 March 2010, Melbourne 150 Thursday, 29 April 2010, Perth 151 Friday, 14 May 2010, Canberra 152 APPENDIX 3 153 Responses to questions taken on notice APPENDIX 4 155 Additional Information Received Tabled Documents 156 12 March 2010, Canberra ACT 156 25 March 2010, Melbourne VIC 156 29 April 2010, Perth WA 156 14 May 2010, Canberra ACT 157 APPENDIX 5 159 Previous inquiry recommendations and actions vi List of the committee's recommendations Recommendation 1 1.126 The Commonwealth Government examine potential new arrangements for Commonwealth involvement in the development and implementation of a national policy for bushfire management. Recommendation 2 3.20 The Commonwealth co-ordinate a standing national arson forum between fire and law enforcement agencies to be held every two years. Recommendation 3 3.24 The Productivity Commission undertake an examination of bushfire risk from ageing power infrastructure, including an assessment of replacement costs and likely suppression costs from bushfires caused by defective infrastructure. Recommendation 4 3.25 Subject to the findings of the Productivity Commission, the Commonwealth examine options for the funding of replacement of power infrastructure that presents an unacceptable bushfire risk. Recommendation 5 3.199 The Commonwealth seek agreement from the states and territories that would enable it to evaluate the adequacy of fuel reduction programs applied by public land management agencies in high bushfire risk areas, and audit their implementation against the program's stated objectives. Recommendation 6 3.201 The Commonwealth publish all fuel reduction plans and related audit findings on a national database. Recommendation 7 3.262 The Commonwealth consult with local, state and territory government planning authorities on the development and dissemination of a house loss risk index for households in Australia's highest risk bushfire areas. Recommendation 8 3.264 The Commonwealth Government work with the states and their agencies to ensure consistent terminology is used when communicating with the public. Recommendation 9 5.15 Further Commonwealth funding for bushfire suppression be made conditional on state fire agencies agreeing to the Commonwealth evaluating and auditing their fuel reduction programs. Recommendation 10 5.53 The Commonwealth assist the states with bushfire training for land managers and volunteers by co-ordinating curriculum development and delivery of a national bushfire accreditation course, to be delivered by the relevant state agencies. Recommendation 11 5.54 The Commonwealth organise the co-operation of state land management and fire agencies to provide the practical training aspect of the curriculum as part of a national bushfire accreditation course. Recommendation 12 5.78 The Commonwealth encourages further research into prescribed burning and its effectiveness and into alternative bushfire mitigation approaches through improved bushfire risk understanding at the asset level. Recommendation 13 5.80 At the conclusion of the current Bushfire CRC funding agreement the Commonwealth establish a new permanent bushfire research institute. Recommendation 14 5.82 The Productivity Commission be tasked to assess the economic effects of recent major bushfires on the Australian economy to determine the cost effectiveness of prescribed burning as a mitigation strategy. Recommendation 15 5.115 The committee recommends that the Commonwealth co-ordinate a national approach to the pooling of ground fire fighting resources across agencies and jurisdictions to maximise the efficiency of their use. viii Chapter 1- Introduction Conduct of the inquiry 1.1 On 12 May 2009 the Senate referred the following matter to the Senate Select Committee on Agricultural and Related Industries for report by 26 November 2009. 1.2 The incidence and severity of bushfires across Australia, including: (a) the impact of bushfires on human and animal life, agricultural land, the environment, public and private assets and local communities; (b) factors contributing to the causes and risks of bushfires across Australia, including natural resource management policies, hazard reduction and agricultural land maintenance; (c) the extent and effectiveness of bushfire mitigation strategies and practices, including application of resources for agricultural land, national parks, state forests, other Crown land, open space areas adjacent to development and private property and the impact of hazard reduction strategies; (d) the identification of measures that can be undertaken by government, industry and the community and the effectiveness of these measures in protecting agricultural industries; (e) any alternative or developmental bushfire prevention and mitigation approaches which can be implemented; (f) the appropriateness of planning and building codes with respect to land use in bushfire prone regions; (g) the adequacy and funding of fire-fighting resources both paid and voluntary and the usefulness of and impact on on-farm labour; and (h) the role of volunteers. 1.3 The committee subsequently sought and received an extension of the reporting date to 13 August 2010. 1.4 The committee advertised the inquiry in The Australian newspaper on 20 May 2009. The committee also invited submissions from a range of organisations and individuals including land management and fire agencies, government departments, forestry organisations, volunteer fire fighting organisations, conservation groups and research and technical bodies. The closing date for submissions was 31 July 2009, though the committee agreed to accept submissions throughout the inquiry. The Page 2 committee received 58 submissions, as well as a range of supporting material. A list of individuals and organisations that made submissions to the inquiry is at Appendix 1. 1.5 The committee held four public hearings, in Canberra (twice), Melbourne and Perth. A list of witnesses who provided evidence is included at Appendix 2. Responses to questions taken on notice at these hearings have been published in Appendix 3. 1.6 A list of material tabled during the inquiry or provided as additional information is at Appendix 4. 1.7 References to the Committee Hansard are to the proof transcript. Page numbers may vary between the proof and the official transcript. 1.8 The committee wishes to acknowledge and thank those who provided written submissions and gave evidence at public hearings. The committee also wishes to express its enormous appreciation for the time and effort thousands of people across Australia, the majority unpaid, devote to protecting Australians from the sometimes catastrophic effects of bushfires. Scope and structure of the inquiry 1.9 The committee recognises that the Commonwealth has limited responsibility for bushfire management in Australia. In accordance with the distribution of powers under the Australian Constitution, the primary responsibility for the protection of life, property and the environment lies with the states and territories.1 The most appropriate role for the Commonwealth in this field is to oversee and support the states' capacity to manage bushfire risks to limit the destruction bushfires cause. 1.10 The committee also acknowledges that there have been