2009 Victorian Bushfires Royal Commission. Submission by The Australian Workers Union Victorian Branch May 2009

Transcription

1 2009 Victorian Bushfires Royal Commission Submission by Victorian Branch May

2 Table of Contents Executive Summary 3 Introduction 4 Causes and circumstances of the bushfires 5 Victoria s Bushfire Strategy 6 Preparation and Planning 9 Prescribed burning 12 Roads and access tracks 17 The false economy of a seasonal response 20 The cost of suppression versus prevention 22 Equipment 24 A new model the Land and Fire Commission 27 Lessons from California 28 All aspects of the response to the 2009 Bushfires 29 Measures taken to minimise disruption to supply of essential services 30 Any other matters 30 Conclusion 30 Endnotes 34 2

3 Executive Summary The Victorian bushfires of Black Saturday, 7 February, were a stark reminder of the destructive power of bushfires and their calamitous consequences for life and property. The tireless efforts of thousands of firefighters - a mix of professional and volunteers - carved out another brave chapter in the history of fire suppression in this State. The ability of our men and women to confront the fire menace is a testimony to their personal qualities and courage - often in circumstances of extreme personal risk - and the AWU salutes them on behalf of all our members. As frontline participants, the AWU is proud of its members in DSE, DPI, Parks Victoria and construction crews on the North-South pipeline and the manner in which they served the State on Black Saturday. The bushfires put more than 2000 members and their families in the front line of fire. The AWU will continue to support many who lost homes and personal property. This submission to the 2009 Bushfires Royal Commission is dedicated to their efforts. It is our belief that if our members future activities are aimed squarely at fire prevention - properly supplemented and equipped as an essential service - the investment will deliver the best possible outcomes for Victoria in lessening the fire risk to the State and the cost of fires. For every $1 of funding allocated to fire management, Victoria benefits by $22 in saving assets. 1 And these are just the economic costs. This submission therefore draws a line in the sand. It is time that Victoria reassesses its fire readiness across a broad front of related activities in regional Victoria, in particular activities associated with responsible fire prevention in addition to suppression. As this submission will attempt to show, it has been the accepted view among authorities that fire is essentially seasonal - that there is time to prepare for the onslaught of hot summers and the related fire risk. Budgets can be amended (and cut) accordingly. This is outdated thinking. This submission sets out to prove that the short term savings in doing more with less - in relying upon the productivity of the few AWU professionals (plus voluntary forces) especially in fire prevention - are significantly more than outweighed by the longer term costs to the State in suppressing fires, the loss of private and State assets and in the recovery. In essence, this is the false economy of the current approach to dealing with fire in Victoria. Whether we are discussing fires caused by lightning strikes such as those in the Alpine region in and in the Great Divide in , climate change-related fires such as those that occurred on Black Saturday or fires which are deliberately lit, the fire threat to life and public and private property assets is an ongoing reality for Victoria. Dealing with that threat is not a seasonal activity, but an all-year-round necessity in order to limit the likelihood, extent, duration and intensity of fires which ultimately need suppressing by the State s firefighting forces. Adopting this approach was recommended in the inquiry into the fires by Emergency Services Commissioner Esplin and it is now overdue. 3

4 Following an overview of analyses and reports over the last decade, this submission argues for the creation of a properly resourced professional firefighting authority dedicated to prudent, fire prevention activities to protect public assets. We propose the establishment of a dedicated fire prevention body, built on the model of the former Victorian Forests Commission (which served the State between 1918 and 1983), with additional full time staff and better and more equipment - especially for fire prevention activities. Such an integrated Land and Fire Commission could undertake a work program which would be all-yearround, including prescribed burn-offs, track creation and maintenance, and an integrated firewatch and early response capability. The AWU has scoped the task we believe is required as a minimum to safely achieve this all-year-round fire capability while also allowing effective access to and use of public land, particularly National Parks and Melbourne s Water Catchments. The fundamental prerequisites are a significant increase in the number of professional country firefighters, a trebling of the area of annual fuel reduction, and major improvements in the number and type of equipment. There is much that Victoria can learn from California in the creation of a dedicated, professional, well resourced country fire fighting force and aspects of the Californian model are included in this submission. Introduction This submission responds to the invitation by the Royal Commission to address its terms of reference including: 1) Causes and consequences of the bushfires 2) Preparation and planning 3) All aspects of the response 4) Measures taken to minimize disruption to essential service; and 5) Any other matters. This submission addresses the terms of reference and links these to a number of core themes. These are: 4 Manning/personnel levels being inadequate for full time 365 days-a-year firefighting; Importance and value of doing more controlled burning including in National Parks and Catchments, and creation and maintenance of access routes, paths etc; Equipment (type, adequacy and number); Training and skills issues, including adequacy of supervision roles and workloads on full timers (professionals) to train seasonal/project firefighters, contractors and volunteers; Impact of current work demands on the workers and their families. Career and related employer issues including ageing of the workforce, attraction, recognition and retention; and OH and S issues and work practices including coordination with other agencies (e.g. DPI). Each of these discussion themes is addressed and linked to the relevant terms of reference.

5 1. Causes and circumstances of the bushfires The inquiry into the Victorian Bushfires by Bruce Esplin (The Victorian Bushfire Inquiry 2003) found that prevailing staffing levels to achieve a full year fire effort were inadequate. 2 His report noted that, with the machinery of government changes to the Department of Natural Resources and Environment splitting personnel between the new departments of Sustainability and Environment, Primary Industries and Planning and Community Development, an important number of professional firefighters were effectively (if not notionally) lost (or fell between the chairs ) to the detriment of protection of public land in Victoria. This is borne out by a review of the reduction in the number of full time (AWU) staff on DSE books dedicated to the fire prevention and suppression task illustrated in the table below: Period 1999/ / / / / / / / / /0 9 Dept NRE NRE NRE NRE DSE DSE DSE DSE DSE DSE AWU staff (excluding PFF's) Project Fire Fighters Casuals Source: DSE, April 2009 Esplin called for urgent action..: That, as a matter of urgency, CFA and DSE: Develop strategies to provide adequate and sustainable firefighting resources, suitably trained and experienced; and Advise Government of these strategies (Rec );.That DSE, with adequate resourcing, moves to a 12-month cycle of fire management to establish and maintain a more appropriate and balanced work program of prevention/mitigation and suppression (Rec 25.23);.That DSE should develop a business case with Department of Treasury and Finance for assured funding to an agreed level over a three-year rolling cycle (Rec 25.24);.That Government reviews the funding for DSE for the fire season to ensure that appropriate resources are available for fire prevention planning and preparedness. (Rec 15.90); and.that Government supports the immediate development of financial models to analyse 5

6 and determine the appropriate level of investment in fire management planning, preparedness and suppression on public land (Rec 15.87). These recommendations were all accepted (apart from which was only accepted in principle 3 ) by the Government 4 yet the numbers of both full time and PFF staff were higher in the year in which the report was handed down ( ) than in This appears anomalous. In fact, the Government as part of its response to Esplin agreed in 2004 to fund increased full time staffing between and by an additional 151 permanent field crew 5. In and , staffing was meant to increase by a net 110 positions. However, a net increase of only 7 positions in on was achieved. Funding for the additional places over the period would appear to have been absorbed by back filling other vacancies during the period and in other costs. Therefore, the financial model called for by Esplin to assist with determining the appropriate level of investment and which DSE said would require work over the medium term is now overdue. The AWU will therefore attempt to fill this gap later in this submission. So, before we begin discussing planning for future responses, it is important to review what has been found to date and recommended in the past in response to previous bushfires. The findings and recommendations included in Esplin s 2003 review are therefore of relevance to the current inquiry in addition to the findings and recommendations of other inquiries such as the Victorian Parliament s Environment and Natural Resources Committee inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria 6 and the Inquiry into Melbourne s Future Water Supply. 7 The AWU s submission to the Parliamentary Inquiry into the Fires raises similar concerns. 8 Victoria s Bushfire Strategy In June 2008, the Government confirmed that its strategic direction is to bolster resourcing as part of its Bushfire Strategy 9 : 6

7 Strategic direction Increase the planned burning effort based on ecological and risk management objectives. This will require building firefighter capability to resource an expanded planned burning program, including a landscape scale mosaic burning program on public land plus support for planned burning on private land. Strategic direction Build and maintain a skilled, fit and experienced firefighting force to deliver an increased planned burning program, meet rising response needs and provide support to volunteers. Source: Living with Fire, Victoria s Bushfire Strategy, June 2008 The Strategy recognises the extent of the fire risk in Victoria with larger areas of the State with extreme amounts of hazardous forest fuel on public land: Source: Living with Fire, Victoria s Bushfire Strategy, Dec

8 Source: DSE April 2009 The coincidence of the most recent fires occurring in areas which have not been subject to extensive prescribed burning in recent years is drawn to the attention of the Commissioners without making any judgment that had these areas been subject to even wide-ranging mitigation that any commensurate impact would have occurred in limiting the scale and severity of the events of that day. That is a matter for others to make assessment. A key issue for the AWU is however to wonder whether the progress and impact of the fires on 7 February would actually have been the same if, as recommended, additional staff had been provided as a matter of urgency 5 years ago and, properly equipped, deployed as part of a 365-day full time work program of fire management, including mitigation, track access, maintenance and control and response measures? 8

9 2. Preparation and planning At its Directions Hearing 10, the Royal Commission heard from Counsel Assisting that: DSE, the Department of Sustainability and Environment, has the legislative responsibility in Victoria for fire prevention and suppression on public land, including state forests, state parks, national parks and wilderness areas. The duty is described in s.61 of the Forests Act, "to carry out proper and sufficient work for the prevention and suppression of fire in every state forest and national park and on protected land. An examination will be undertaken as to how their obligation has been met. On a higher level there will be evidence put before the Royal Commission directed at investigating the effectiveness of fuel reduction in fire management. It is a complex issue. The issue is additionally complicated by the urban/bush mix of many of the high risk bushfire areas. Other matters to be addressed in relation to this issue include issues and questions of adequate resources and adequate experience. The issue is of course of great importance to those that the Victorian community calls upon to fight its fires. DSE s role in managing public land On public land, the department in its annual report says it strategic goal is ensuring that public assets are well maintained and that communities can continue the long held connection to Victoria s public parks, reserves, and other landscapes. The department works with other key agencies to minimise the detrimental impacts of fire and other natural threats and will continue to manage land and catchments in ways that enhance water quality and quantity. Land and Fire Management This DSE output covers the preparation of plans, codes, prescriptions and guidelines which establish the framework for effective fire management on public land; activities for the prevention of wildfire (community education, regulation) and; activities that minimise the adverse impact of wildfire (training, fixed infrastructure, information systems, and firefighting equipment). Fire operations are also to be conducted to minimise the adverse impact of wildfire, such as hazard management, access, detection, stand-by, seasonal firefighters, aircraft, equipment and response activities. The incidence of fires on public land has been going up, while resources and the area benefiting from prescribed burning - measured cumulatively - have been going down: 9

10 10

11 Fuel Reduction Burns 180, , , ,000 Hectares 100, ,000 Fuel reduction burning Target Fuel reduction burning Actual 105, ,000 90, , , , ,000 80,000 81,140 60,000 40,000 20,000 65,800 49,200 Damp conditions in the East of the State and extremely dry conditions in the North West and North East. 49,000 Unusually dry conditions from last spring until early autumn of this year were followed by wet and cold conditions which significantly slowed the burning program Year Source: DSE While not looking back, it is clear that the cumulative, additional controlled burning load will require an on-going commitment by the State. That will require additional resources. This catch up effort is in addition to the overdue extra resourcing required to meet best practice benchmarks. 11

12 Much more can be done by way of fire prevention but this requires resourcing... The amount of burning that can take place in a year is proportional to the number of available, well resourced crews multiplied by the number of days available. there has been a loss of staff with skills in fire management due to DSE s downsizing and the lack of availability of experienced personnel in fire behaviour to oversee the [ecological burning] programs (Fire Ecology Working Group, 1999). The Inquiry was informed that numbers of DSE staff had dropped from about 1500 to 2000 in the mid 1980s to about 250 permanent field-based staff in Social factors also impact on resourcing. After a busy and tiring fire season in which officers often give up the chance to spend time with their families because of actual fires or the threat of fire, the autumn period (encompassing Easter) would seem an obvious time for scheduling vacations. This period is also a prime time for prescribed burning so there may be shortages of experienced staff to conduct prescribed burns. Further, Project Fire Fighters, employed and trained for the summer fire season, have mostly completed their short-term employment contracts and are not available to assist with the autumn prescribed burning programs. (Inquiry into the Victorian Bushfires ) AWU members have a direct stake in the State s preparation and planning for the prevention, identification, evaluation, and management of bushfire threats and risks in conjunction with other state services and authorities. DSE firefighters have an intimate onthe-ground knowledge of preventing bushfires, extinguishing them when they occur, and rehabilitation afterwards. Prescribed burning 11 Most prescribed burning in forests takes place in public land set aside for conservation, wood products and water catchments. While it is neither desirable nor feasible to burn all of rural Victoria to reduce fuel loads, there are substantial areas, especially of public land, that are suitable for this form of fuel management. Prescribed burning may be the only costeffective means of fuel reduction in such areas. When the fuel load is reduced, by definition the potential intensity of the fire is reduced; if the fuel is reduced below the threshold level and kept there by repeated prescribed burning or other means, then successful suppression within that area is likely, given adequate resources. The managed use of fire to reduce fuel loads in our public land forests (and other vegetation types) since the 1950s has been the major strategy employed by Government to mitigate the risk of unplanned fire spreading into private lands. Inquiry into the Victorian Bushfires

13 Prior to the late 1980s unplanned fires burned about 120,000 hectares per year, and during the 1980s a similar amount was treated by prescribed fires (Morgan & Roche 1998). Considering the whole DSE estate, this would amount to 240,000 of 7,700,000 hectares or 3.1% per year on average. DSE and Parks Victoria recognise that current levels of burning, from whatever source, are inadequate for ecological requirements per year (Dept Treasury and Finance, Victoria, and the Department of Natural Resources and Environment, 1998). 12 This has been affirmed 10 years later in the latest Bushfire Strategy. And there is a tension between the requirement for ecological burning following the reduction in forestry activities with a broader conservation focus. 13 i It is arguable that when weather conditions and fire risks reach a point on the scale of that of Black Saturday and when fires cannot be immediately contained and extinguished effectively or safely, the State is left to rely upon its past investment in prescribed burning in reducing the fuel load in the vicinity of the fire area. Victoria is experiencing an expansion of urban rural fringe communities characterised by high population turnover, more transient and diverse communities and declining volunteerism. In addition, millions of holiday makers visit high risk areas, often with little knowledge or experience of fire. (Living with Fire Victoria s Bushfire Strategy, 2008) Personnel levels are too low. Resourcing is based on the average over the last 7 years. But this model is backward looking and neither accounts for the additional burden placed on existing professional staff to achieve existing prescribed burning targets, nor any capacity to increase the target to more appropriate levels. The AWU draws the attention of the Royal Commission to the recommendations of the Parliamentary Report by the Environment and Natural Resources Committee on the Inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria. 14 In particular, attention is drawn to Recommendations 2.2 and 2.7 which set out respectively the optimal level of prescribed burning as a rolling target and the requisite increase in permanent personnel to achieve it. The Government s response to the inquiry on 4 December 2008 expressed support in principle only to both recommendations and made a number of qualifying comments, including supporting a move away from hectare-based targets: The AWU is profoundly concerned by the rundown in permanent full time DSE staff over the last years. There is evidence that the decline in staff from over 1500 since the 1990s to around 239 in has coincided with the increase in the fuel load and the magnitude of the fire prevention task over a vast public estate. This has been compounded by the loss of resources following the split up of DNRE in

14 Recommendation 2.2 That in order to enhance the protection of community and ecological assets, the Department of Sustainability and Environment increase its annual prescribed burning target from 130,000 hectares to 385,000 hectares. This should be treated as a rolling target, with any shortfalls to be made up in subsequent years. Support in principle The Victorian Government supports this recommendation in principle. The Victorian Government supports planned burning to improve protection, conservation and production outcomes. However, the annual area treated by planned burning needs to be determined based on science and risk management frameworks and be subject to suitable opportunities as dictated by seasonal conditions. Given this, the Government recognises that the amount of planned burning will vary to take into account these factors. The Government supports a move away from focusing on hectare-based targets which may lead to inappropriate planned burning programs. They do not account for differences in the effort required for small area asset protection burns (often around settlements) compared with larger scale mosaic burns in more remote areas. The latter, while not providing immediate and apparent asset protection are important for achieving multiple outcomes. A combination of both is required. Source: ENRC 2008 and Government Response Dec

15 Recommendation 2.7 That the Victorian Government provide recurring funding for a significant increase in regionally-based, permanent, or long-tenured, fire management personnel dedicated to the prescribed burning program. The increase in personnel should be consistent with the level required to achieve an annual prescribed burning target of 385,000 hectares The pool of available personnel should be suitably diverse and possess a wide variety of disciplines and skill sets, including practical skills. The Department of Sustainability and Environment and its partner agencies should also increase the proportion of personnel with specialist tertiary qualifications, including fire behaviour specialists, forest scientists, landscape ecologists and conservation biologists. The Department of Environment and Sustainability and its partner agencies should also prioritise the development of programs to reduce the level of staff turnover and the problem of the ageing workforce, through more effective succession planning. Support in principle The Victorian Government supports this recommendation in principle. Government recognises the need for Victoria s fire management agencies to maintain adequate fit, skilled and experienced personnel across the state. Government is identifying opportunities for: extending seasonal contracts and additional regional firefighters for both response and an increased program of planned burning; succession planning, including accelerated training and learning opportunities to fill current and projected gaps in operational experiences and bush skills; improved firefighter health, wellbeing, safety and fatigue management; the skills and capacity to undertake the requisite community engagement; volunteer training and support; and research and monitoring including specialist tertiary qualified personnel in fire behaviour, forest science, biology, ecology and fire management planning. Source: ENRC 2008 and Government Response Dec 2008 In the AWU s view, the use of and increase in hectare-based targets is entirely appropriate. We would agree with the point made in Victoria s Bushfire Strategy (June 2008) that a continued focus on excluding and minimizing the amount of fire in the landscape will only increase the frequency and impact of severe fires. 15 And; that the current scale of planned burning is insufficient to deliver desirable protection and ecosystem service needs 16 The following (AWU) graph illustrates the point: 15

16 Commitment to a target therefore is vital in terms of ensuring a commitment to the fire mitigation effort in circumstances where, as the Bushfire Strategy acknowledges, the incidence and severity of bushfires has been increasing over the last decade. 17 DSE s commitment to minimize the adverse impact of wildfire is also relevant, requiring further hazard reduction and a much higher level of prescribed burning. 16

17 In evidence before the Committee, DSE concluded that applying the principles of this work to Australia would translate to the treatment of around two to five per cent of the landscape in strategic locations each year to ensure an impact in a large fire situation. [252] DSE also concluded that the same research suggested that for randomly positioned treatments, around four to ten per cent of the landscape would need to be treated each year to have the same effect. [253] 252 Victorian Government, Submission, no. 168, 4 June 2007, p Victorian Government, Submission, no. 168, 4 June 2007, p. 4. Roads and Access Tracks The 2003 Esplin review noted the importance of including the cost of fire tracks in the development of financial models to analyse and determine the appropriate level of investment in fire management planning, preparedness and suppression on public land. (Rec ). This was accepted by the Government (notwithstanding their in-principle support only for the development of financial models in the first place)

18 Tracks are important for both firefighting and fire-preparedness. They provide access by ground crews to unplanned fires, define blocks for prescribed burning, and form the edge against which ignition can take place during firefighting - for both burning out areas of fuel or for initiating prescribed fires. 18

19 Tracks have a range of attributes. They can be wide or narrow, have passing areas and turnaround points (for trucks and other machinery), have shallow or steep gradients, be rough or smooth, vegetated or clear, follow ridges or contours, be straight or winding. They may include water crossings, and may have separate entrances and exits. Tracks can be temporary or permanent. Temporary tracks can be maintained regularly, created at the time of the fire or readied at such times only. Tracks created during unplanned fires may be rehabilitated or become part of the track network requiring maintenance and repair. Tracks can be always open or gated. Tracks may be trafficable by two-wheel and four-wheel drives, vehicles of particular weight classes, or tracked vehicles only. Source: The Victorian Bushfire Inquiry 2003 DSE announced plans to significantly increase the level of fuel reduction and ecological burning. DSE referred to the planned adoption of increased landscape scale burning across multiple kilometres-wide areas. [306] The new approach was described as involving a focus on particular regions in a given year, during which a two to three month presence would be maintained by DSE and its partner agencies. In some cases, this would involve maintaining a fire in the region for much of that period and, if necessary, repeated efforts to overcome the vagaries of the weather. DSE also announced its intention to move away from reporting the total hectares treated each year as the sole measure of its prescribed burning program, towards the increased use of multiple measures. One such measure cited by DSE was the percentage of the area treated within each kilometre-wide burning area (e.g. whether 50, 70 or 80 per cent of such an area was treated). [307] 306 P. Harris, Secretary, Department of Sustainability and Environment, Transcript of evidence, Melbourne, 7 April P. Harris, Secretary, Department of Sustainability and Environment, Transcript of evidence, Melbourne, 7 April Source: Inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria,

20 The false economy of the seasonal response The highly skilled work of Victoria s Forest Firefighters is not adequately recognised because they work behind the scenes and all year round in preventing, controlling and extinguishing bushfires. Across Australia the cost of all fires is estimated at $13.5 billion rising to $18 billion by The value of preventative measures therefore appears to be substantial. Economics of Fire Prevention The economics of bushfire prevention $ million 2006 prices Lives and Injuries Agriculture & Forestry OH&S Firefighters Water & Carbon Economy Structural Fire Losses ,586.7 Losses in Business and Commerce 1, ,972.9 Ecosystem Services 9, ,155.0 Total Cost 13, ,086.4 Source: Bushfire CRC Poster 2006 Estimating the cost of bushfire: now and in 2020, John Handmer, Simon Fisher et al.. 20

21 Table of Performance measures - DSE Quantity Actual Fuel reduction burning completed to protect key assets Personnel with accreditation in a fire role Proportion of personnel who have level 2 or 3 accreditation State Forest roads and tracks (d) Actual Target Actual Target Actual ha 127,000 49, , , , , Target(a) 130,000 number 1, 546 1,374 1,500 2,499(b) 1,500 1,993(c) 1,500 per cent per cent nm Cost (e) $ million Sources: Victorian Budget Papers, and DSE Annual Report Report of Operations for Actual Outcome (a) Victorian Budget Papers released May (b) Victorian Budget Papers released May Accreditation was made a DSE priority in resulting in a better than anticipated achievement (c) Victorian Budget Papers released May Expected Outcome is greater than the Target due to training of additional fire fighters to meet the demand for early commencement, succession planning, and anticipation of a severe fire season. (d) The new performance measure replaces the performance measure State Forest Roads and Tracks with Documented Inspection and Maintenance Programs. Roads are classified into two broad categories; public roads, and operational roads. Category 1 roads are operational roads used for activities such as fire prevention and suppression, and may not be available for public use. Output funding provides for Category 1 roads only. There is no change is what is being measured; however the change in wording better describes what is being delivered. (e) Additional funding was provided to meet costs associated with the fire season and the Gippsland Flood Relief package. Furthermore, funding for Bushfire Recovery program was transferred from Natural Resources and Biodiversity outputs and depreciation expense for floating assets was transferred from the Public Land output.

22 The cost of suppression versus prevention the case of the Victorian Budget The major components of the once off non-recurring funding being provided in are $353.9 million for fire suppression and response activities in light of Victoria s severe fire season and to undertake a trial of large scale mosaic burns. 19 The overall total cost for expected outcomes for this deliverable in is $548.3 million compared to the target of $186.5 million, equivalent to a cost overrun (because of the fire suppression and response costs noted above) of 190 per cent. This follows a 38 per cent actual increase in costs compared to the target in and a 144 per cent cost overrun in However, despite these trends in recent years, and the events of the current fire season, supplementation of DSE s budget for these activities for of only 6.2 per cent has so far been agreed compared to the target. In expected actual dollar terms this represents a massive cut (although the Budget does include scope to review - see below). The AWU s assessment is that whole-of-government linked efficiency dividends from DSE s bids for increased budget appropriations are effectively limiting fire prevention activities and are eventually more than outweighed by the large and unpredictable actual costs of fire suppression. 20 By denying both necessary and sufficient funding support for DSE s duties under the Forests Act, the cost of suppression represents a very poor return on the investment by the State towards achieving effective planning and management of fire across public land 21 aimed at saving assets. Further, the imposition of an artificial budget constraint has induced a Melbourne-centric and top-down management response by DSE to the fire challenge rather than giving priority to maximizing on-the-ground resources aimed at achieving objectives in regional Victoria.. Source: Service Delivery, DSE, Budget Paper No 3, Chapter 3, Victorian Budget

23 An ageing workforce A range of stakeholders expressed concerns regarding the ageing workforce available for prescribed burning and other fire management activities. These stakeholders emphasised the need for more effective succession planning. The Australian Workers Union (AWU) informed the Committee that the average age of its fire management members is approaching 49 years.[388] The Committee was unable to determine the total number of operational staff available for prescribed burning in recent years. However, DSE informed the Committee that there had been an increase in operational and support staff of more than ten per cent between 2002 and [389] Under the current arrangements between DSE, VicForests, Parks Victoria, and Melbourne Water, around 2,500 fire accredited personnel (and a further 1,000 coordination and support personnel) are available each fire season.[390] DSE also informed the Committee that changes to the Project Fire Fighter (PFF) Program, to allow the recruitment of personnel on three year contracts (for the period October to May each year), had boosted the number of operational personnel available for prescribed burning. DSE advised the Committee that under the PFF Program, between 400 and 600 additional personnel were available for the 2006/07 prescribed burning program.[391] 388 Australian Workers Union Victorian Branch, Submission, no. 10, 24 April 2007, p K. Ritchie, Regional Director North East, Department of Sustainability and Environment, Transcript of evidence, Mount Beauty, 28 November Victorian Government, Submission, no. 168, 4 June 2007, p Victorian Government, Submission, no. 168, 4 June 2007, pp Source: Inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria 2008 The additional cost of suppression has in recent years been substantial, often requiring hefty supplementation by way of a Treasurer s Advance. 22 Indeed, the cost of the Great Divide fires which ran for 69 days and burned over 1 million hectares cost an additional $170 million to suppress on top of regular budget allocations. 23 This year s fires (as already outlined) have resulted in double the level of supplementation required for the Great Divide fires. 23

24 Unfortunately, a reliance on seasonal firefighters (and contracted PFFs) rather than on well trained and equipped full time, permanent employees means that problems affecting the safety, equipment, training and staffing of our Forest Firefighters which have persisted for many years are having a dramatic impact. Accreditation and training are also matters of concern to the AWU relating to the rundown in skills of permanent staff. These have been subject to repeated representations by us. We are also aware of concerns regarding the firereadiness of non-dse staff, including DPI staff. A number of stakeholders were critical of the current staffing policies of DSE and its partner agencies, in relation to fire prevention and suppression in general, and to prescribed burning in particular. Areas of concern raised by stakeholders included insufficient staffing levels, the decline in permanent staff, staff turnover, the skills mix of personnel, and the need for more effective succession planning. A range of stakeholders expressed the view that Victoria has experienced a significant decline in the number of locally based fire management staff.[371] Stakeholders also noted that there had been a reduction in permanent staff and a shift towards employing officers primarily for the Summer fire season, who were subsequently unavailable for the prescribed burning program.[372] A further disadvantage noted in relation to such seasonally-based employment was the difficulties experienced by staff in becoming part of local communities.[373] Under-resourcing of operational regional staff within Parks Victoria was also noted as a particular problem.[374] 371 See for example: The Bushfire Front, Submission, no. 121, 25 May 2007, p. 7; Community and Public Sector Union, Submission, no. 97, 24 May 2007, pp. 1,9; L. Lasham, Submission, no. 183, 31 May 2007, p. 5; Australian Workers Union Victorian Branch, Submission, no. 10, 24 April 2007, p See for example, The Bushfire Front, Submission, no. 121, 25 May 2007, p The Bushfire Front, Submission, no. 121, 25 May 2007, p Community and Public Sector Union, Submission, no. 97, 24 May 2007, pp. 5,12. Source: Inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria 2008 Equipment (linked to terms of reference 11) Similar to concerns regarding the lack of a critical mass of staff to deal with the fire challenge all year round, the AWU is concerned at the lack of assets currently on DSE s register devoted to the prevention and suppression of fires. While acknowledging that most of the equipment (as with the staff) is contracted during the summer peak, it is illustrative of a model which sees fires as a seasonal rather than permanent challenge, requiring a standing - rather than temporary (or contracted) - response. 24

25 Comparison of the register of assets of the Victorian and Californian jurisdictions is illustrative of the under-investment in equipment to respond to the constant fire challenge in Victoria. The Committee agrees with the view expressed by a range of stakeholders that the level of permanent, or long-tenured, locally based staff within DSE, DPI, Parks Victoria and VicForests should be further increased to ensure an adequate level of prescribed burning, particularly during years when weather conditions are unfavourable. The need for an additional increase in the level of such staff is further emphasised by the increased annual prescribed burning target that has been recommended by the Committee. Moreover, the Committee agrees that further initiatives are required to address the problems of staff turnover, the current skills mix of personnel, and the problem of an ageing workforce through more effective succession planning. The OESC also found that DSE personnel involved in prescribed burning are recognised as highly trained and experienced experts but face pressure to meet targets. Some DSE staff considered that there was a lack of organisation support and noted fatigue management as a further problem. The report also found that personnel and resources at the time of year when prescribed burning is conducted were either not available or at a minimum.[397] [397] Emergency Services Commissioner, Examination of Prescribed Burning Practices, Office of the Emergency Services Commissioner, Melbourne, 2005, pp Source: Inquiry into the Impact of Public Land Management Practices on Bushfires in Victoria

26 Plant Status / Class Size as at 15th Apr 09 (Source: DSE) Body Type Class Type Additional / Std Total Aviation Refueller TRUCK AVIATION REFULLER 6000LTR Additional - Post Backhoe Loader WB4 BACKHOE - LOADER > 4000KG Additional - Post Std Replacement 6 Crawler Dozer 105C CRAWLER > 105KW < 150KW Std Replacement 9 150C CRAWLER > 150KW < 200KW Std Replacement 2 45C CRAWLER > 45KW < 60KW Std Replacement 35 60C CRAWLER > 60KW < 75KW Std Replacement 1 Excavator ERG HX7 Excavtor > 16 tonnes Additional - Post Fire Tanker 4WD FIRE TANKER LTR Std Replacement 81 Fire Work Boat Fire Boats Additional - Post FLOAT TRAILER FLOAT TRAILER-TANDEM AXLE 16000KG Additional - Post Std Replacement 14 FLOAT TRAILER-TRI AXLE 25000KG Additional - Post Std Replacement 1 Float Tray TRUCK > 15 TONNE GVM Additional - Post Std Replacement 17 Fork Lift Fork Lift > 2500KG Additional - Post Additional (2nd Hand) 8 Grader 95 GRADER > 95KW < 110KW, MASS > 11400KG Additional (2nd Hand) 1 Std Replacement 11 Multi Terrain Loader 10WL FRONT-END LOADER > 1000KG < 1500KG Additional - Post Prime Mover TRUCK > 15 TONNE GVM Additional - Post Std Replacement 2 Single Cab 4x2 - Tipper/Crane TRUCK > 8.9 TONNE < 15 TONNE GVM Additional - Post Tipper TRUCK > 15 TONNE GVM Std Replacement 16 TRUCK > 4 TONNE < 6.3 TONNE GVM Std Replacement 3 TRUCK > 6.4 TONNE < 8.4 TONNE GVM Std Replacement 1 TRUCK > 8.9 TONNE < 15 TONNE GVM Replaced & Retained 1 Std Replacement 5 Tractor 10W WHEEL TRACTOR Std Replacement 1 30W WHEEL TRACTOR > 30KW < 45KW Std Replacement 1 45W WHEEL TRACTOR > 45KW < 60KW Additional (2nd Hand) 1 Std Replacement 1 60W WHEEL TRACTOR > 60KW < 75KW Additional - Post Additional (New) 1 Std Replacement 15 75W WHEEL TRACTOR > 75KW < 90KW Std Replacement 2 Tray TRUCK > 15 TONNE GVM Std Replacement 2 TRUCK > 8.9 TONNE < 15 TONNE GVM Std Replacement 3 Wheel Loader 25WL FRONT-END LOADER > 2500KG < 3000KG Replaced & Retained 1 Std Replacement 1 Grand Total 284 Source: DSE, April

27 A new model - the Land and Fire Commission A single, integrated body is required to consolidate the State s land and fire management responsibilities and functions within DSE. Such a new Land and Fire Commission could build on the model of the former Forests Commission (of Victoria) 24 to combine the relevant activities of agencies including DSE, DPI and Parks Victoria. The new coordinated entity would have responsibility for Crown land outside applicable city limits. By combining responsibility within one body, firefighting resources could be clearly directed, avoiding the current difficulties of relying on a patchwork of different people in different organisations with different goals. Research and development initiatives in wildfire prevention and control land and water management could best be concentrated in the one authority, serving as an innovation hothouse for dealing with the new challenges of climate change. Consideration should be given to adopting an MFB-style funding model to provide statutory, secure resourcing for the dedicated agency. The major source of MFB funding is obtained through statutory contributions, collected quarterly in advance as follows: 12.5% from the State Government 12.5% from Municipal Councils whose districts are within or partly within the metropolitan fire district 75% from Insurance Companies (including insurance intermediaries for Lloyds). The AWU believes that there is the same justification for the funding model employed for the MFB, including the role for insurance companies in investing in fire prevention, in the bush. Cost savings from the preservation of assets from fire threats emanating from public land would represent a similar level of incentive for insurance companies to consider participating in such a scheme. A cost benefit analysis of alternative funding models is required which would enable a fully funded Land and Fire Commission to be established without necessarily adding to the Budget s bottom line. Number of Personnel required to achieve target fuel reduction of 385,000 hectares(a) per year Days available for fuel reduction per year Average hectares burnt per DSE firefighter per day (b) ,417 3,208 2, ,278 2,139 1,426 27

28 120 3,208 1,604 1,069 (a) Recommended target by Environment and Natural Resources Committee, June 2008 Hearing. (b) 2008 DSE report (Annual Report 2008) 700 personnel were deployed daily with an average of area burnt each day 5,206 hectares. Assume that one DSE officer can sustain this activity three days per week then the average DSE worker could burn an average 3 hectares per working day. The DSE reported this as an outstanding achievement so we have used this as the most optimistic scenario where ideal stable weather conditions, 359 hours of aircraft flight time, multiple support personnel and planning were involved. A more realistic assumption would be 1 or 2 hectares per day because fuel reduction burns, especially along roadsides, close to communities, near assets and with less reliable weather conditions imply much slower rates of burning. Lessons from California There are other organisational models which do not rely on voluntarism or Memorandums Of Understanding with other States and countries and which bring the focus back to a dedicated firefighting force. A good example for Victoria is provided by the California Department of Forestry and Fire Protection (CDF or CAL FIRE). In addition to its forest fire functions, the Department provides varied emergency services in 36 of the State's 58 counties via contracts with local governments. 25 CDF is the largest fire department in California and the third largest fire department in the United States. CDF Firefighters protect 33 million acres of State Responsibility Area (SRA). However, from the Oregon border to the Otay Mountains in San Diego, CDF Firefighters 26 are among the best-trained firefighters in the world. There are over 4,000 members within the CDF Firefighters employee organisation, which is associated with California Professional Firefighters (CPF) and the International Association of Firefighters (IAFF). CDF firefighters, fire engines and aircraft respond to an average of more than 5,600 wildland fires each year. Those fires burn more than 172,000 acres annually. Prescribed burning forms a core part of California s Fire Plan

29 Victoria versus California Comparing the level of personnel and equipment between Victoria and California, there is no contest. In California today the full time firefighters are responsible for around 8,250 acres per person (3,340 hectares) whereas in Victoria it is almost 80,000 acres (32,200 hectares) per person (AWU full timers in DSE). That is an order of magnitude of around 10 times the geographical responsibility for DSE staff compared to full time Californian (CDF) staff. These do not include contractors, part timers or other staff from other agencies, but this is part of our point. CDF retains more than double the number of full time staff to part time. In Victoria the ratio is reversed. There is merit in looking more closely at the California model (which has moved away from a seasonal approach) to inform the case for the increase in full time staff in Victoria devoted to the all-year-round fire challenge. 3. All aspects of the response to the 2009 Bushfires, particularly measures taken to control the spread of fires and measures taken to protect life and private and public property, including but not limited to: a) immediate management, response and recovery; b) resourcing, overall coordination and deployment; and c) equipment and communication systems. The AWU is concerned to ensure the Royal Commission hears the views of members concerning the top-down approach to managing for bushfire prevention. At its core are issues relating to the number of personnel, remuneration and working conditions and the adequacy and numbers of appliances and equipment devoted to the overall fire fight. At the same time, our members have knowledge and expertise in steps required to avoid bushfires, and responding to them, including limiting their impacts. The expertise and insights of our members would be of value to the Royal Commission in the opinion of the AWU. A key constraint to effectiveness is the lack of personnel, and limits on the numbers and capability of equipment which has hampered firefighters response to the bushfires. Under-funding of firefighters (as we have seen) is a recurring problem, including poor pay and conditions (e.g. practical recognition for skills and career opportunities), and budget support for supplying appropriate equipment. These aspects of the response are in tension with the professionalism of the DSE Forest Firefighters which was on full display on 7 February. The AWU is therefore concerned that current responses to future bushfire risks are not sustainable in the longer term. 29

30 Applying a CFA-style model is not appropriate in the context of the urban/rural sprawl driven by demographic changes including the decline of volunteer communities. In the future a professional, fully funded service is required on the front line, backed up by auxiliary forces in emergencies. Other issues raised by AWU members include lack of cohesive responses between DSE and DPI, fatigue management for fire tower operators and the serviceability of radio equipment. 4. Measures taken to minimize disruption to supply of essential services The AWU represents members who are vital to the construction, maintenance and protection of our water supplies, particularly the construction of pipelines and the protection of water catchments in event of a fire. The events of 7 February demonstrate that more needs to be done to ensure the quality and protection of our water catchments and supply. The ENRC found that there is a need for an increase in the extent and frequency of prescribed burning in catchment areas to mitigate the risks associated with future bushfires. One of the most important ways that forestry can contribute to increasing future water availability from Melbourne's water catchments is through the judicious application of active management strategies which manage the water uptake of forest stands, particularly with the use of forest thinning. This approach is currently being used in Perth' s water supply catchments, and is also being considered by the Government in its analysis for Action. [2.21] 5. Any other matters The AWU is concerned to ensure that its members employed by relevant agencies have an opportunity to be represented before this Commission collectively and individually by their Union and that there is adequate protection and immunity for workers who assist its inquiry. There are a range of issues which are also relevant to the direction by the Government for recommendations for government emergency services, other entities and the community. Conclusion The AWU is a proud defender of Victoria s public lands from the threat posed by bushfire. This submission has in major part been about recognising the efforts of our members who have devoted their services to this State to lesson the impact of bushfires on life and property. This submission has attempted to show that for too long a cost-centric, seasonal approach to bushfire management has blurred consideration of the optimal funding program required for the necessary levels of personnel and equipment. This has impeded the fire prevention 30

31 program, which, in turn, has added to the cost and difficulty of suppression and recovery activities. This is a false economy and a poor return on investment by the State in avoiding the worst excesses of calamitous fires. Victoria has simply fallen behind. After numerous inquiries and reviews, Victoria can no longer afford to allow a seasonal model to dominate its approach to confronting fire risks. Prevention and suppression activities are not just seasonal pursuits but all-year-round, core functions of government on behalf of the people of Victoria. Treating fire is in fact an essential service and should be approached as such. Approaching these critical challenges piecemeal is insufficient. Reducing the hazardous fuel load, creating better access to public land through trails and tracks, better maintaining fire towers and providing additional equipment are critical activities in which Victoria has been under-investing for too long. This backlog requires a major overhaul of the manpower, funding levels and management arrangements devoted to the fire challenge. As this submission has tried to demonstrate, there is ample evidence that increasing personnel devoted to full time prevention activities, particularly on additional prescribed burning and trail maintenance, would be an effective investment aimed at avoiding costs in terms of lost assets caused by fire and lessening the impact of fire generally. We have suggested a new body, a Land and Fire Commission, and a new funding model in order to provide an adequate fire prevention capacity in Victoria. However, there will be other models and funding mechanisms. A full cost-benefit analysis should be undertaken to arrive at an optimal solution. Lessons from other jurisdictions, including California, are important to Victoria because many of the issues facing our State today have already been considered and addressed elsewhere. However, what is clear from any consideration of future approaches is that there is no substitute for adequate levels of available, well trained, full time personnel and equipment. These are the two main ingredients required for minimising fire risks. The AWU welcomes this opportunity to offer this submission to the Royal Commission and is ready to assist in its vital work on behalf of all Victorians. 31

32 Latrobe Valley Express Monday 13 April

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