the february 2009 fires - 2009 Victorian Bushfires Royal Commission
the february 2009 fires - 2009 Victorian Bushfires Royal Commission
the february 2009 fires - 2009 Victorian Bushfires Royal Commission
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THE FEBRUARY <strong>2009</strong> FIRES<br />
1
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1<br />
THE FEBRUARY <strong>2009</strong> FIRES<br />
Box 1.1: Terminology to describe fire events<br />
Area of fire – <strong>the</strong> area of burnt ground, measured in hectares, that a fire covers on <strong>the</strong> ground surface.<br />
Blacking out – <strong>the</strong> process of ensuring that all stumps, branches and burning items are extinguished.<br />
Contained – indicates that <strong>the</strong> spread of <strong>the</strong> fire is halted even though it may still be burning within <strong>the</strong> perimeter or control lines.<br />
Control line – a natural or constructed barrier, or treated fire edge, used in fire suppression and prescribed burning processes to<br />
limit/prevent <strong>the</strong> spread of fire.<br />
Crowning – occurs when <strong>the</strong> fire reaches <strong>the</strong> canopies of <strong>the</strong> trees; <strong>the</strong> fire may <strong>the</strong>n jump, or run, from one crown to <strong>the</strong> next.<br />
Direct attack – a method of fire attack where wet or dry firefighting techniques are used.<br />
Dozer – an earth-moving vehicle with a large blade used to construct control lines.<br />
Fire ground – <strong>the</strong> area in <strong>the</strong> vicinity of <strong>the</strong> wildfire and fire suppression operations, and <strong>the</strong> area immediately threatened by <strong>the</strong> fire.<br />
Fire line – see control line (above).<br />
Going – an assessment that a fire exists and is expanding.<br />
Graders – an earth-moving vehicle with a small blade used to assist in <strong>the</strong> construction of control lines.<br />
Indirect attack – <strong>the</strong> use of backburning as a method of suppressing and confining a fire.<br />
Intensity – <strong>the</strong> heat output per length of fire line. Intensity is primarily influenced by <strong>the</strong> rate of spread of <strong>the</strong> fire and <strong>the</strong> quantity<br />
of fuel consumed.<br />
Pumper – generally a 2WD firefighting vehicle, designed for urban operations, equipped with a large capacity pump and a limited<br />
capacity water tank. It requires reticulated water for firefighting operations.<br />
Rappel crew – firefighting teams that abseil onto a fire ground via helicopter and ropes.<br />
Rate of Spread – <strong>the</strong> forward progress of <strong>the</strong> head fire or ano<strong>the</strong>r specified part of <strong>the</strong> fire perimeter (usually reported in<br />
kilometres per hour).<br />
Red flag warning – critical warning for <strong>the</strong> fire group that necessitates an acknowledgment.<br />
Safe – an assessment that no fur<strong>the</strong>r suppression action or patrols are considered necessary.<br />
Slip-on unit – equipment comprising a small water tank, a hose reel, a pump, and an engine that can be slipped onto a Land<br />
Cruiser or patrol-sized vehicle.<br />
Spotting – <strong>the</strong> sparks and embers that are carried by wind and convective activity and that start <strong>fires</strong> outside <strong>the</strong> main firefront.<br />
Spotting and <strong>the</strong> development of spot <strong>fires</strong> most commonly occur in front of and around <strong>the</strong> lead edge of <strong>fires</strong>, but can also occur<br />
along <strong>the</strong> sides.<br />
Strike team – usually five or six firefighting vehicles and crews deployed to operate as a cohesive unit on <strong>the</strong> fire ground.<br />
Tanker – generally a 4WD firefighting vehicle, designed for rural operations.<br />
Under Control 1 – a fire assessment that <strong>the</strong> complete perimeter of <strong>the</strong> fire is secured, no breakaway is expected, but continuous<br />
patrolling and mopping up is still required.<br />
Under Control 2 – a fire assessment that <strong>the</strong> complete perimeter of <strong>the</strong> fire is secured and no breakaway is expected.<br />
34
The February <strong>2009</strong> Fires<br />
Source: AAP Image<br />
35
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
This chapter presents a description of <strong>the</strong> main <strong>fires</strong>, <strong>the</strong>ir ignition and subsequent passage. The description of<br />
<strong>the</strong> Kilmore East fire is more extensive than o<strong>the</strong>rs as it is <strong>the</strong> only fire that has been examined in depth during <strong>the</strong><br />
public hearings, although <strong>the</strong>re is still fur<strong>the</strong>r evidence to be heard even in respect of that fire. The <strong>Commission</strong><br />
will complete its examination of <strong>the</strong> Kilmore East fire and <strong>the</strong> o<strong>the</strong>r <strong>fires</strong> in <strong>the</strong> next block of hearings.<br />
Introduction<br />
1.1<br />
1.2<br />
1.3<br />
1.4<br />
1.5<br />
This chapter provides <strong>the</strong> context for matters discussed in <strong>the</strong> interim report. The description of <strong>the</strong> <strong>fires</strong> is<br />
sourced principally from <strong>the</strong> evidence of Mr Russell Rees, Chief Officer of <strong>the</strong> Country Fire Authority (CFA),<br />
Mr Ewan Waller, Chief Fire Officer of <strong>the</strong> Department of Sustainability and Environment (DSE), toge<strong>the</strong>r with<br />
evidence received from expert and lay witnesses. It focuses on fire ignition, its subsequent movement, and<br />
<strong>the</strong> broad fire agency response. Fire warnings are discussed in Chapter 4, although an outline of warnings<br />
for each fire is given below.<br />
Accounts of <strong>the</strong> <strong>fires</strong> vary, as material was provided to <strong>the</strong> <strong>Commission</strong> in a range of formats. The narrative<br />
is incomplete since <strong>the</strong> <strong>Commission</strong> has yet to hear from many of <strong>the</strong> operational personnel who directly<br />
managed <strong>the</strong> <strong>fires</strong>. They will be able to provide fur<strong>the</strong>r information to <strong>the</strong> <strong>Commission</strong>, as will o<strong>the</strong>r lay<br />
witnesses during future hearings. Once this additional information is received, this narrative of <strong>the</strong> <strong>fires</strong><br />
will be updated for <strong>the</strong> final report.<br />
A more comprehensive narrative of <strong>the</strong> Kilmore East fire is provided in <strong>the</strong> interim report, because <strong>the</strong><br />
<strong>Commission</strong> has heard greater detail on this event.<br />
Where timings have been provided in statements and evidence, <strong>the</strong>y are outlined below. For <strong>the</strong> purposes<br />
of this chapter only, timings have been described using <strong>the</strong> 24-hour clock. Witnesses have drawn <strong>the</strong>se<br />
from <strong>the</strong>ir own recollections or records, or from details on <strong>the</strong> CFA Incident Management System (IMS)<br />
and <strong>the</strong> DSE FireWeb. 1 Where timings were not specified, <strong>the</strong>y are absent. Fires are listed according to<br />
<strong>the</strong> time <strong>the</strong>y were reported. Discussion on <strong>the</strong> <strong>fires</strong> is separated into:<br />
■■ fire activity before 7 February<br />
■■<br />
■■<br />
fire activity on 7 February<br />
fire activity after 7 February.<br />
To put this narrative of <strong>the</strong> <strong>fires</strong> in perspective, a summary of wea<strong>the</strong>r information provided by <strong>the</strong> Bureau<br />
of Meteorology (BoM) is set out first, followed by observations on fire behaviour.<br />
The Wea<strong>the</strong>r<br />
1.6<br />
Wea<strong>the</strong>r conditions are invariably an important factor in all fire analysis, but a fuller understanding of <strong>the</strong><br />
abnormal wea<strong>the</strong>r conditions leading up to, and on, 7 February is crucial to considering <strong>the</strong> subsequent<br />
impact of <strong>the</strong> <strong>fires</strong>. Wea<strong>the</strong>r information outlined below is largely drawn from <strong>the</strong> evidence of Dr Mark<br />
Williams, Regional Director of <strong>the</strong> <strong>Victorian</strong> Office of <strong>the</strong> BoM.<br />
2<br />
1.7 Central Australia has warmed 1.5–2.0°C over <strong>the</strong> last century. Over <strong>the</strong> last 12 years, Victoria has<br />
experienced warmer than average temperatures, and <strong>the</strong> last decade has been <strong>the</strong> warmest on record,<br />
breaking records going back 154 years. 3 During <strong>the</strong> same period, <strong>the</strong>re has been very little above average<br />
rainfall and most of Victoria received ei<strong>the</strong>r below or well below average rainfall. A large portion of sou<strong>the</strong>rn<br />
Victoria, notably <strong>the</strong> area that surrounds Melbourne, received <strong>the</strong> lowest rainfall on record. The same has<br />
been experienced in western Victoria. 4 Dr Williams stated that:<br />
The whole of south-east Australia has suffered a severe and protracted drought which is without<br />
historical precedent. In central Victoria <strong>the</strong> 12-year rainfall totals have been around 10 to 20 % below<br />
<strong>the</strong> 1961–90 average and 10 to 13 % below <strong>the</strong> lowest on record for any 12-year period prior to 1997. 5<br />
36<br />
1.8<br />
Across Victoria <strong>the</strong> average annual rainfall during this drought has been 555 mm, compared with<br />
a long-term average (1961–1990) of 653 mm. 6
The February <strong>2009</strong> Fires<br />
Figure 1.1: <strong>Victorian</strong> rainfall deciles<br />
January <strong>2009</strong><br />
Mildura<br />
Hay<br />
Goulburn<br />
Ouyen<br />
Swan Hill<br />
Deniliquin<br />
Wagga Wagga<br />
Canberra<br />
Horsham<br />
Bendigo<br />
Echuca<br />
Benalla<br />
Albury<br />
Perisher Valley Cooma<br />
Omeo<br />
Casterton<br />
Ballarat<br />
Melbourne<br />
Bairnsdale<br />
Portland<br />
Warrnambool<br />
Geelong<br />
Wonthaggi<br />
Latrobe Valley<br />
Cape Otway<br />
Wilsons Prom.<br />
February <strong>2009</strong><br />
Mildura<br />
Hay<br />
Goulburn<br />
Ouyen<br />
Swan Hill<br />
Deniliquin<br />
Wagga Wagga<br />
Canberra<br />
Horsham<br />
Bendigo<br />
Echuca<br />
Benalla<br />
Albury<br />
Perisher Valley Cooma<br />
Omeo<br />
Casterton<br />
Ballarat<br />
Melbourne<br />
Bairnsdale<br />
Portland<br />
Warrnambool<br />
Geelong<br />
Wonthaggi<br />
Latrobe Valley<br />
Cape Otway<br />
Wilsons Prom.<br />
Source: Exhibit 22 – Statement of M Williams, Annexure 1 (WIT.013.001.0012) at 0032 and 0034 7<br />
Note: Rainfall deciles for January and February <strong>2009</strong> indicate that<br />
both months are ‘very much below average’. 8 Across central and<br />
eastern Victoria, <strong>the</strong>re is a strong association between drought<br />
and <strong>the</strong> occurrence of major bush<strong>fires</strong>. 9<br />
Lowest on record<br />
Very much below average<br />
Below average<br />
Average<br />
37
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Figure 1.2: <strong>Victorian</strong> annual mean temperature, 1910–2008, standardised against <strong>the</strong> 1961–1990 average<br />
2<br />
Australian Bureau of Meteorology<br />
1<br />
Mean T Anomaly (ºC)<br />
–1<br />
–2<br />
1910<br />
1920 1930 1940 1950 1960 1970 1980 1990 2000<br />
Year<br />
Source: Exhibit 22 – Statement of M Williams, Annexure 1 (WIT.013.001.0012) at 0030 10<br />
Note: The annually averaged mean temperature for Victoria has deviated from <strong>the</strong> 1961–1990 average. The solid line represents an 11 year moving<br />
average. 11 The grey areas indicate below average temperatures and <strong>the</strong> red areas indicate above average temperatures. 12<br />
2008–09 bushfire season<br />
1.9 During <strong>the</strong> three months from October to December 2008, most of Victoria received near-average to above<br />
average rainfall. 13 In contrast, <strong>the</strong> early part of <strong>2009</strong> was exceptionally dry, with below average to record<br />
low rainfall for January, particularly in central and western parts of Victoria. Melbourne had its second driest<br />
January on record. The dry wea<strong>the</strong>r continued during February <strong>2009</strong>, with most of <strong>the</strong> western half of<br />
Victoria experiencing well below average rainfall. 14 In fact, <strong>the</strong>re was ‘dipole activity’, with wet monsoonal<br />
activity in nor<strong>the</strong>rn Australia and very hot, dry conditions fur<strong>the</strong>r south. 15<br />
1.10<br />
1.11<br />
After a relatively mild start to <strong>2009</strong>, exceptional heatwave conditions developed across south-east Australia<br />
in late January. The last week of January witnessed one of <strong>the</strong> most severe, prolonged heatwaves in sou<strong>the</strong>ast<br />
Australia’s recorded history. 16 Dr Williams noted that ‘very, very hot air and very, very high temperatures<br />
[were] experienced in Victoria during that period’. 17 In sou<strong>the</strong>rn South Australia, and much of central,<br />
sou<strong>the</strong>rn and western Victoria, maximum temperatures widely reached <strong>the</strong>ir highest levels since at least<br />
1939. 18 Melbourne experienced three consecutive days over 43°C — a new record. 19<br />
The week leading up to 7 February was characterised by a series of high-pressure systems to <strong>the</strong> south of<br />
Victoria, which moved eastwards from <strong>the</strong> Great Australian Bight into <strong>the</strong> Tasman Sea. The air heated over<br />
land throughout this period, and this continued until 7 February. The set of charts in Figure 1.3, from 23:00<br />
on 6 February to 05:00 on 8 February, demonstrate, in six-hourly intervals, <strong>the</strong> static high-pressure cell in<br />
<strong>the</strong> Tasman Sea on 7 February and <strong>the</strong> passage of <strong>the</strong> pressure trough across Victoria. 20<br />
38
The February <strong>2009</strong> Fires<br />
Figure 1.3: The 6-hourly passage of <strong>the</strong> pressure trough across Australia on 7 February <strong>2009</strong><br />
National Meteorological Oceanographic Centre<br />
11:00am EDT Friday 6 February <strong>2009</strong><br />
National Meteorological Oceanographic Centre<br />
5:00am EDT Saturday 7 February <strong>2009</strong><br />
TC “Freddy”<br />
1004<br />
L<br />
x<br />
996<br />
L<br />
x<br />
1001<br />
L<br />
x<br />
997<br />
1004<br />
L<br />
x<br />
998<br />
5 Kt<br />
990<br />
Check latest<br />
cyclone warnings<br />
L<br />
x<br />
998<br />
L<br />
x<br />
1000<br />
L<br />
x<br />
998<br />
1020 1012<br />
1004<br />
H<br />
x<br />
1012<br />
1012<br />
1004<br />
35 Kt<br />
1004<br />
1012<br />
L<br />
x<br />
986<br />
996<br />
1011 H<br />
x<br />
1012<br />
1004<br />
25 Kt<br />
1020<br />
L<br />
x<br />
981<br />
988<br />
996<br />
H<br />
x<br />
1014<br />
H<br />
x<br />
1018<br />
National Meteorological Oceanographic Centre<br />
11:00am EDT Saturday 7 February <strong>2009</strong><br />
National Meteorological Oceanographic Centre<br />
5:00pm EDT Saturday 7 February <strong>2009</strong><br />
5 Kt<br />
TC “Freddy”<br />
Check latest<br />
cyclone warnings<br />
988<br />
L<br />
x<br />
1002<br />
L<br />
x<br />
1000<br />
L<br />
x<br />
1002<br />
L<br />
x<br />
1007<br />
TC “Freddy”<br />
Check latest<br />
cyclone warnings<br />
2 Kt<br />
989<br />
1004<br />
L<br />
x<br />
999<br />
L<br />
x<br />
998<br />
L<br />
x<br />
1005<br />
1008<br />
L<br />
x<br />
1020 1012<br />
1024<br />
1016<br />
1008<br />
1000<br />
998 1016 H<br />
x<br />
30 Kt<br />
1018<br />
1004<br />
996<br />
L x<br />
996<br />
H<br />
x<br />
1019<br />
L<br />
x<br />
976<br />
988<br />
L<br />
35 Kt<br />
National Meteorological Oceanographic Centre<br />
11:00pm EDT Saturday 7 February <strong>2009</strong><br />
National Meteorological Oceanographic Centre<br />
5:00am EDT Sunday 8 February <strong>2009</strong><br />
2 Kt<br />
1004<br />
TC “Freddy”<br />
989<br />
Check latest<br />
cyclone warnings<br />
999<br />
L<br />
x<br />
L<br />
x<br />
1000<br />
6 Kt<br />
TC “Freddy”<br />
1004<br />
988<br />
Check latest<br />
cyclone warnings<br />
L<br />
x<br />
L<br />
x<br />
1000<br />
1000<br />
1012<br />
L<br />
x<br />
1012<br />
1020<br />
L<br />
x<br />
1005<br />
1020<br />
1012<br />
1012<br />
1012<br />
H<br />
x<br />
1026<br />
1004<br />
996<br />
988<br />
H x<br />
1020<br />
Hx<br />
1004<br />
H<br />
x<br />
996<br />
1019<br />
1027<br />
988<br />
35 Kt<br />
45 Kt<br />
Map source: Exhibit 22 – Statement of M Williams, Annexure 1 (WIT.013.001.0012) at 0042 21<br />
39
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
1.12<br />
As a result of <strong>the</strong>se conditions, <strong>the</strong> BoM issued numerous forecasts and warnings of severe fire wea<strong>the</strong>r<br />
conditions in <strong>the</strong> week leading up to 7 February. The BoM also issued 205 public and fire wea<strong>the</strong>r<br />
publications (products) between 11:00 Friday 6 February and 05:00 Sunday 8 February. 22<br />
Wea<strong>the</strong>r conditions on Saturday 7 February<br />
1.13 On <strong>the</strong> evening of 6 February, a high-pressure system located in <strong>the</strong> Tasman Sea was directing very hot air<br />
over much of Victoria. A cold front was located across sou<strong>the</strong>rn Western Australia extending to <strong>the</strong> south<br />
of <strong>the</strong> Bight, and was moving eastwards towards Victoria. 23<br />
1.14<br />
1.15<br />
1.16<br />
1.17<br />
On 7 February temperatures rose quickly, and strong gale-force north-westerly winds began to reach ground<br />
level. 24 By 11:00, temperatures were near 40°C, with relative humidity already below 20 per cent in many<br />
parts of <strong>the</strong> state. Both forest and grass fire danger indices were well into <strong>the</strong> extreme category by 11:00<br />
in western and central Victoria. Fire danger indices (FDI) were approaching Extreme in <strong>the</strong> rest of Victoria. 25<br />
Many all-time site records were set in Victoria on 7 February, including Melbourne (154 years of records),<br />
where <strong>the</strong> temperature reached 46.4°C, far exceeding its previous all-time record of 45.6°C set on Black<br />
Friday (13 January 1939). It was also 3.2°C above <strong>the</strong> previous February record, which was set in 1983. 26<br />
During <strong>the</strong> day, temperatures reached mid 40°C in many parts of <strong>the</strong> state and relative humidity was mostly<br />
below 10 per cent. North-westerly winds had ei<strong>the</strong>r maintained or increased in strength during <strong>the</strong> morning.<br />
Mount Gellibrand Automatic Wea<strong>the</strong>r Station (AWS) was by <strong>the</strong>n recording storm-force winds (90 kilometres<br />
per hour), while winds of 40–60 kilometres per hour were recorded over much of <strong>the</strong> state. Forest and Grass<br />
Fire Danger Indices were significantly into <strong>the</strong> Extreme category in nearly all of <strong>the</strong> state. 27<br />
In <strong>the</strong> far south-west, a strong, gusty, south-westerly wind change entered <strong>the</strong> state at about 12:30,<br />
dropping temperatures and increasing relative humidity. At this stage no shower activity was associated<br />
with <strong>the</strong> change. 28 Many places had now reported, if not <strong>the</strong>ir hottest day on record, <strong>the</strong>n <strong>the</strong>ir hottest for<br />
February. Wind gusts to 115 kilometres per hour were reported at Mount William and Mount Gellibrand,<br />
while gusts over 90 kilometres per hour were recorded at a number of o<strong>the</strong>r sites. 29 The strong and gusty<br />
south-westerly wind change moved eastwards at a rate of about 30 kilometres per hour. Fire danger ratings<br />
remained well into <strong>the</strong> Extreme category ahead of <strong>the</strong> wind change, and in central parts of <strong>the</strong> state <strong>the</strong>se<br />
did not drop below Extreme until up to an hour after <strong>the</strong> change. 30<br />
40<br />
Source: AAP Image
The February <strong>2009</strong> Fires<br />
Figure 1.4: A post event analysis of <strong>the</strong> hourly surface positions of <strong>the</strong> wind change on 7 February <strong>2009</strong><br />
Mildura Mildura<br />
Robinvale<br />
Murrayville<br />
Ouyen<br />
Walpeup<br />
Swan Hill Hill<br />
Hopetoun<br />
Kerang<br />
12am<br />
Yarrawonga<br />
Albury<br />
Echuca<br />
Ru<strong>the</strong>rglen Wodonga<br />
Hunters Corryong Hill<br />
Charlton<br />
Nhill Nhill Ap<br />
Donald<br />
Shepparton Wangaratta<br />
Shepperton Wangaratta<br />
Benalla<br />
Horsham<br />
Horsham<br />
Ap<br />
Bendigo<br />
Euroa<br />
Bright<br />
Mangalore<br />
Longerenong<br />
Falls Creek<br />
Redesdale<br />
Avoca Castlemaine Seymour<br />
Mt Hotham<br />
Mansfield<br />
Edenhope Edenhope<br />
Stawell<br />
VICI<br />
Mt Buller<br />
Omeo<br />
Yea Eildon<br />
Mt Hotham Gelantipy<br />
Ararat<br />
Kanagulk<br />
Mt William<br />
Kilmore Gap<br />
Ap<br />
Combienbar<br />
Ballarat<br />
Marysville<br />
Dargo<br />
Ballarat<br />
Casterton<br />
Melbourne Ap<br />
Cann River<br />
Westmere<br />
Coldstream<br />
Orbost<br />
Mallacoota<br />
Hamilton<br />
Mt Baw Baw<br />
Mt Nowa Nowa<br />
Laverton<br />
Melbourne Mt Moornape<br />
Hamilton<br />
Bairnsdale<br />
Mallacoota<br />
Sheoakes<br />
Mt Dandenong<br />
Bairnsdale Orbost<br />
Avalon Dandenong VICF<br />
Mortlake<br />
VACH<br />
East<br />
Geelong Frankston Warragul<br />
Sale Sale<br />
Geelong Ap Frankston Latrobe Traralgon Valley<br />
Warrnambool<br />
Portland Mt Gellibrand<br />
Portland Ap<br />
Colac<br />
South Channel Is<br />
Warrnambool<br />
Anglesea<br />
VICD<br />
9pm<br />
Aireys Inlet Cowes<br />
Lorne<br />
Cerberus<br />
Port Fairy<br />
Yarram<br />
Wonthaggi<br />
Ap<br />
Cape Nelson<br />
Rhyll<br />
VICJ<br />
Apollo Bay<br />
Pound Creek<br />
Cape Otway<br />
Noon<br />
3pm<br />
Wilsons Promontory<br />
6pm<br />
Hogan Is<br />
Source: Exhibit 3 – Statement of M Williams, Annexure 1 (WIT.013.001.0012) at 0043 31<br />
Note: Fixed and portable Automatic Wea<strong>the</strong>r Station (AWS) locations are indicated by place names. Stylised arrows indicate <strong>the</strong> north-westerly winds<br />
ahead of <strong>the</strong> wind change and south-westerly winds behind <strong>the</strong> wind change. 32<br />
41
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
33<br />
1.18 Mr Rees described in his statement <strong>the</strong> wea<strong>the</strong>r features common to bushfire disasters in Victoria:<br />
… Wind direction propels <strong>the</strong> growth of a fire. Changes in wind direction can rapidly increase <strong>the</strong> size of<br />
fire, and <strong>the</strong> risks to fire firefighters and <strong>the</strong> general community. In Victoria hot dry winds often come from<br />
<strong>the</strong> north and northwest and are often followed by a southwest wind change. In this situation … <strong>the</strong> side<br />
of a fire can quickly become a much larger fire front (head of <strong>the</strong> fire). 34<br />
1.19<br />
1.20<br />
The passage of <strong>the</strong> south-westerly front was a feature of <strong>the</strong> ferocity and destruction of <strong>the</strong><br />
Ash Wednesday <strong>fires</strong>. 35<br />
On 7 February <strong>the</strong> western district <strong>fires</strong> [albeit on a smaller scale] provided an indication of what was<br />
to come with <strong>the</strong> Kilmore East and Murrindindi <strong>fires</strong>:<br />
■■<br />
■■<br />
■■<br />
At Coleraine <strong>the</strong> eastern flank of <strong>the</strong> fire was not contained before <strong>the</strong> wind change at 13:23. There was<br />
concern for <strong>the</strong> township of Coleraine and fire behaviour was at its worst upon arrival of <strong>the</strong> change. 36<br />
The Pomborneit fire initially threatened Swan Marsh township. The arrival of <strong>the</strong> south-westerly change<br />
at approximately 4:15 relieved <strong>the</strong> situation and turned <strong>the</strong> fire towards Lake Corangamite. 37<br />
At Horsham <strong>the</strong> fire on <strong>the</strong> eastern flank was largely contained by <strong>the</strong> time of <strong>the</strong> arrival of <strong>the</strong><br />
south-westerly change at 16:28 but it was recognised that, had <strong>the</strong> flank of this fire not been secured,<br />
<strong>the</strong> township of Horsham may have been threatened. 38<br />
The diagram below, taken from <strong>the</strong> statement of Mr Rees, depicts <strong>the</strong> impact of <strong>the</strong> south-westerly change on <strong>the</strong><br />
fireground and <strong>the</strong> subsequent enlargement of <strong>the</strong> fire front.<br />
Figure 1.5: Common fire behaviour in <strong>Victorian</strong> wea<strong>the</strong>r conditions<br />
Point of origin<br />
New fire head<br />
(a)<br />
(b)<br />
(c)<br />
a) fire being blown by a nor<strong>the</strong>rly wind<br />
b) southwesterly wind change<br />
c) <strong>the</strong> eastern flank has become<br />
a much larger fire front<br />
North<br />
Head<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0053 39<br />
42<br />
1.21<br />
In <strong>the</strong> south, it took only minutes for <strong>the</strong> wind to change from north or north-west to south-west, while at<br />
some locations north of <strong>the</strong> ranges <strong>the</strong> change in wind direction took an hour or more. 40 The thunderstorms<br />
forming in <strong>the</strong> smoke plumes above <strong>fires</strong> east and north east of Melbourne (known as pyrocumulonimbus)<br />
began to produce lightning (photo 1.1 and diagram 1.1). 41 Due to <strong>the</strong> heat that is generated from<br />
<strong>the</strong> condensation, <strong>the</strong> pyrocumulonimbus cloud is likely to have doubled <strong>the</strong> intensity of <strong>the</strong> <strong>fires</strong>. 42<br />
Pyrocumulonimbi were formed because of <strong>the</strong> particular extreme wea<strong>the</strong>r and fire conditions on 7 February.<br />
The air mass was very hot and almost dry, although it did contain small amounts of water vapour. While <strong>the</strong><br />
general direction of <strong>the</strong> surface fire was in a sou<strong>the</strong>rly direction, spotting also occurred to <strong>the</strong> east, due to<br />
differences in wind direction at various levels of <strong>the</strong> atmosphere within <strong>the</strong> pyrocumulonimbus cloud. 43
The February <strong>2009</strong> Fires<br />
Photo 1.1: Massive convective plume on nor<strong>the</strong>rn flank of <strong>the</strong> Kilmore East Fire at 15:25<br />
Diagram 1.1: Pyrocumulonimbus cloud development<br />
Cloud forms when moisture in rising air starts to condense<br />
Mid-level winds<br />
Air heated by fire carrying<br />
moisture and soot from<br />
burnt fuel.<br />
Soot<br />
Hot Air<br />
Hot Air<br />
Photo source: Richard Alder<br />
Source: Exhibit 126 – Bushfire CRC Interim Report (CRC.300.001.0001_R) at 0067 44<br />
Source: Exhibit 22 – Statement of M Williams (WIT.013.002.0001) at 0068 45<br />
1.22<br />
1.23<br />
To support <strong>the</strong> fire agencies, in 2007–08 <strong>the</strong> BoM placed a meteorologist in <strong>the</strong> <strong>the</strong>n Emergency<br />
Coordination Centre for that fire season, and again in 2008–09 in <strong>the</strong> Integrated Emergency Coordination<br />
Centre (iECC). 46 In addition, in <strong>2009</strong>, it deployed 4 portable wea<strong>the</strong>r stations before 7 February, a fifth<br />
on 7 February, and 8 overall during <strong>the</strong> fire emergency. 47<br />
Ash Wednesday on 16 February 1983 is used by fire agencies as a benchmark for subsequent major<br />
fire events. Table 1.1, provided to <strong>the</strong> <strong>Commission</strong> by Mr Rees, indicates <strong>the</strong> forecast temperatures on<br />
15 and 16 February 1983 compared with 7 February <strong>2009</strong>. The more severe forecasts generally eventuated<br />
on 7 February <strong>2009</strong>, highlighting <strong>the</strong>ir severity.<br />
43
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Table 1.1: Comparison of fire wea<strong>the</strong>r estimates for 15 and 16 February 1983 and 7 February <strong>2009</strong><br />
Forest location<br />
Temp<br />
Relative<br />
Humidity % Wind Dir Wind speed Wind change<br />
Swan Hill 42 10 N 15<br />
Swan Hill 42 10 N 25<br />
Swan Hill 46 5 NW 40–65 SW 35 18–22<br />
Hamilton 35 15 N 20<br />
Hamilton 40 10 N 45<br />
Hamilton 40 13 WNW 45–70 W 40 11–15<br />
Bendigo 37 15 N 15<br />
Bendigo 37 15 N 30<br />
Bendigo 37 15 N 45–75 WSW 35 17–21<br />
Ballarat 34 15 N 20<br />
Ballarat 38 10 N 45<br />
Ballarat 41 6 WNW 50–80 W 40 15–19<br />
Shepparton 39 10 N 15<br />
Shepparton 39 10 N 30<br />
Shepparton 42 4 NW 45–75 SSW 30 20–00<br />
Mangalore 38 15 N 15<br />
Mangalore 39 15 N 30<br />
Mangalore 43 5 NW 45–70 S 30 19–23<br />
Melbourne 34 15 N 15 Sea breezes pm<br />
Melbourne 39 10 N 45<br />
Melbourne (Tullamarine) 44 7 NNW 55–85 W 35 16–20<br />
Orbost 34 20 NNW 15 Sea breezes pm<br />
Orbost 38 15 NNW 30<br />
Orbost 40 14 NNW 20–40 SSW 35 20–00<br />
Forecast issued at 17:00 hrs on 15/02/83 for 16/02/83<br />
Forecast issued at 10:30 hrs on 16/02/83 for 16/02/83<br />
Forecast issued at 14:45 hrs on 04/02/09 for 07/02/09<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0067 48<br />
44
The February <strong>2009</strong> Fires<br />
Fire Behaviour<br />
1.24<br />
1.25<br />
1.26<br />
1.27<br />
Fire behaviour results from <strong>the</strong> interaction of fuel, wea<strong>the</strong>r, topography and <strong>the</strong> fire itself. Overlaying this<br />
basic framework is a direct link between drought, increased fire activity and more intense fire behaviour. 49<br />
This summary of <strong>the</strong> fire behaviour on 7 February is drawn largely from <strong>the</strong> evidence of Dr Kevin Tolhurst,<br />
senior lecturer and researcher at <strong>the</strong> University of Melbourne.<br />
The wea<strong>the</strong>r conditions leading up to 7 February, and <strong>the</strong> combination of <strong>the</strong> drought and <strong>the</strong> heatwave,<br />
led to increased combustibility and volatile fire behaviour because many of Victoria’s normally moist forests<br />
were dry. 50 These forest fuels carried <strong>the</strong> fire more easily than ordinarily expected. In turn, this led to <strong>fires</strong> of<br />
exceptional severity. So <strong>the</strong> conditions leading up to 7 February not only dried out Mountain Ash forests,<br />
which ordinarily would have been too moist to burn, but also added additional fuel loads to <strong>the</strong>se forests. 51<br />
Areas of bush had also died due to <strong>the</strong> cumulative effects of <strong>the</strong> drought over preceding years. Mr David<br />
McGahy, <strong>the</strong> Arthurs Creek-Stra<strong>the</strong>wen CFA Brigade Captain who has lived in <strong>the</strong> area for 40 years,<br />
observed:<br />
… [<strong>the</strong> bush] was dying because of <strong>the</strong> cumulative effect of all <strong>the</strong> dry years. It was in a lot of trouble,<br />
<strong>the</strong> bush. I remember talking to one of <strong>the</strong> DSE chaps and he said, ‘If we cop a fire through here, it’s had<br />
it, this bush. It’s not going to regenerate because it is under too much stress now.’ So it was extreme.<br />
The week before we had had two or three days of 45 and it was just extreme. We knew if it came, it was<br />
going to be something special. 52<br />
1.28<br />
1.29<br />
1.30<br />
The fine fuels were desiccated by <strong>the</strong> conditions and <strong>the</strong>y added again to <strong>the</strong> fuel load. Fine fuels respond<br />
much more to <strong>the</strong> short-term conditions such as <strong>the</strong> temperature, relative humidity and local wind<br />
conditions. Woody fuels — twigs, branches and fallen leaves — add to <strong>the</strong> heat coming off <strong>the</strong> burnt<br />
area. They also add considerably to <strong>the</strong> heat in <strong>the</strong> main convection column which, in turn, drives <strong>the</strong> fire.<br />
Normally those woody fuels burn behind <strong>the</strong> firefront and do not contribute much to <strong>the</strong> nature of <strong>the</strong> fire.<br />
However, when <strong>the</strong>re is a large fire, under <strong>the</strong>se dry conditions, <strong>the</strong>y can add considerably to <strong>the</strong> convection<br />
column, which influences <strong>the</strong> whole firefront. 53<br />
The <strong>fires</strong> of 7 February did not progress in a single, easily distinguishable line — <strong>the</strong>re was a ‘fire zone’<br />
that extended kilometres ahead of <strong>the</strong> firefront. 54 As described in <strong>the</strong> paragraphs below, this zone<br />
contained spotting that started fur<strong>the</strong>r <strong>fires</strong>, which in turn burnt some areas well ahead of <strong>the</strong> main<br />
firefront. Subsequently, <strong>the</strong> main firefront passed over <strong>the</strong> same areas, fur<strong>the</strong>r burning any remaining<br />
fuel. This process expedited <strong>the</strong> progress of <strong>the</strong> <strong>fires</strong>.<br />
The <strong>fires</strong> varied in description and behaviour:<br />
■■<br />
■■<br />
■■<br />
■■<br />
classic grass and scrub <strong>fires</strong> in western Victoria<br />
conventional bush<strong>fires</strong> progressing from ground <strong>fires</strong> to flame heights of 30(+) metres<br />
55<br />
extensive spotting directly sighted 13–14 kilometres ahead of firefronts and estimated up to 35 kilometres<br />
ahead of firefronts, with greater spotting over shorter distances, causing additional <strong>fires</strong> to ignite 57<br />
spot <strong>fires</strong> fur<strong>the</strong>r from <strong>the</strong> firefront, burning in <strong>the</strong> direction of <strong>the</strong> prevailing wind, while spot <strong>fires</strong> closer<br />
to <strong>the</strong> main firefront burnt back towards <strong>the</strong> fire. 58<br />
56<br />
45
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Photo 1.2: Spot fire activity on <strong>the</strong> sou<strong>the</strong>rn escarpment of <strong>the</strong> Hume Range, north east of Whittlesea, at 16:27, 7 February <strong>2009</strong><br />
Photo source: Richard Alder<br />
Source: Exhibit 126 – Bushfire CRC Interim Report (CRC.300.001.0001_R) at 0067 59<br />
1.31<br />
1.32<br />
The <strong>fires</strong> did not progress in a neat linear movement across <strong>the</strong> countryside. It was a chaotic series of<br />
surging <strong>fires</strong>, with spontaneous spotting kilometres ahead of <strong>the</strong> firefronts. 60 While flanks of <strong>the</strong> <strong>fires</strong> could<br />
be identified and in some cases secured, <strong>the</strong> heads of <strong>the</strong> <strong>fires</strong> were largely hidden in smoke and generated<br />
a deafening roar. Their location was not readily known until <strong>the</strong> <strong>fires</strong> were observed affecting houses,<br />
properties and o<strong>the</strong>r locations. From <strong>the</strong> Kangaroo Ground fire tower, Mr Gavin McCormack described <strong>the</strong><br />
fire behaviour as: ‘<strong>the</strong> fire continued to spot in front of itself, but <strong>the</strong> fire kept catching up with <strong>the</strong> spotting.<br />
It looked liked waves of fire’. 61<br />
In summary, Dr Tolhurst advised <strong>the</strong> <strong>Commission</strong> that ‘<strong>the</strong> conditions that we saw on 7 February were as<br />
extreme as we have ever seen <strong>the</strong>m’. 62 7 February was anticipated to be, and in every respect turned out<br />
to be, a day of extreme fire conditions.<br />
63<br />
1.33 The <strong>fires</strong> and <strong>the</strong> conditions have been characterised in evidence before us as unprecedented.<br />
1.34<br />
The volunteer Captain of <strong>the</strong> Kinglake CFA Brigade, Mr Paul Hendrie, provided <strong>the</strong> <strong>Commission</strong> with a<br />
memorandum distributed in his CFA region in preparation for 7 February. The memorandum referred to fire<br />
conditions including potential flame heights of 35 metres, spotting of 8 kilometres, a head fire rate speed of<br />
2.5 kilometres per hour. 64 In relation to fire tactics <strong>the</strong> memorandum stated ‘Crews should expect first attack<br />
to be ineffective unless <strong>the</strong> fire is small’. 65<br />
46
The February <strong>2009</strong> Fires<br />
1.35 Dr Tolhurst thought <strong>the</strong>se figures were based upon a fuel load of about 12 tonne per hectare, half <strong>the</strong> likely<br />
average in <strong>the</strong> Yarra Ranges and a long way short of <strong>the</strong> fuel loads observed in January by CFA personnel.<br />
Dr Tolhurst indicated <strong>the</strong> calculations contained in <strong>the</strong> memorandum were an underestimation of <strong>the</strong> likely<br />
conditions. 66 Never<strong>the</strong>less, <strong>the</strong> information contained in <strong>the</strong> memorandum, and <strong>the</strong> flame height figure in<br />
particular, is important. The safe distance, because of heat radiation, from flame is calculated at four times<br />
flame height. Thus with a 35 metre flame height <strong>the</strong> safe distance from <strong>the</strong> fire is 120 –150 metres. 67 Flame<br />
height of 35 metres indicates a crown fire — a fire driven by open wind leading to an increased rate of speed<br />
of <strong>the</strong> fire. 68<br />
1.36 Mr Waller provided <strong>the</strong> <strong>Commission</strong> with a chart that demonstrates <strong>the</strong> intensity of <strong>fires</strong> that burned on<br />
7 February against o<strong>the</strong>r significant fire events.<br />
Figure 1.6: The intensity of <strong>fires</strong> that burned on 7 February<br />
Average Fireline Intensity (on flat ground)<br />
Based on max wea<strong>the</strong>r observations near to fire and existing models<br />
– assumes 25 t/ha fuel load –<br />
kW/m<br />
80,000<br />
FFDI<br />
70,000<br />
189 Black Saturday<br />
7 Feb <strong>2009</strong><br />
Ash Wednesday actual<br />
fire behaviour was as<br />
high if not higher.<br />
60,000<br />
171<br />
Ash Wednesday<br />
16 Feb 1983<br />
Fire behaviour spectrum<br />
that we are unlikely to<br />
bridge with conventional<br />
control techniques.<br />
50,000<br />
100<br />
Black Friday<br />
13 Jan 1939<br />
40,000<br />
87<br />
Tatong Fire<br />
16 Jan 2007<br />
30,000<br />
20,000<br />
10,000<br />
25<br />
Active crown fire possible<br />
4,000 10<br />
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Fires Examined<br />
1.39<br />
1.40<br />
1.41<br />
1.42<br />
The CFA indicated <strong>the</strong>re were a total of 1386 incidents reported on 7 February — 592 grass and bush<strong>fires</strong>,<br />
263 structure <strong>fires</strong> and 156 reported incidents that were false alarms. 72 The CFA identified 47 <strong>fires</strong> that had<br />
<strong>the</strong> potential to become ‘very severe <strong>fires</strong>’. 73 A number of <strong>fires</strong> managed by DSE developed into large <strong>fires</strong><br />
on public land but involved no threat to life or private property. Many of <strong>the</strong>se <strong>fires</strong> were contained and<br />
extinguished. Of <strong>the</strong> <strong>fires</strong> that were not readily contained on or before 7 February, 14 of those 47 became<br />
‘major <strong>fires</strong>’. 74<br />
The <strong>Commission</strong> has chosen to examine 12 <strong>fires</strong> where lives were lost or significant damage occurred.<br />
These are Kilmore East; Murrindindi; Churchill; Delburn; Bunyip; Narre Warren; Beechworth-Mudgegonga;<br />
Bendigo; Redesdale; Coleraine; Horsham; and Pomborneit–Weerite.<br />
The <strong>Commission</strong> has recorded some detail in this interim report on each of <strong>the</strong>se <strong>fires</strong>. More detailed<br />
evidence has only been received on <strong>the</strong> Kilmore East fire and is reflected in this report, though that evidence<br />
is also not complete.<br />
In reporting <strong>the</strong>se fire events and <strong>the</strong> response of <strong>the</strong> fire agencies, it is necessary to include technical terms<br />
used by <strong>the</strong> fire agencies. These terms are defined in <strong>the</strong> box at <strong>the</strong> beginning of this chapter (Box 1.1).<br />
Naming of Fires<br />
1.43 It became evident that <strong>the</strong> naming of <strong>fires</strong> was an issue on 7 February and it has remained an issue for <strong>the</strong><br />
<strong>Commission</strong>. Fires were known by <strong>the</strong>ir point of origin, or by a name used early in <strong>the</strong> fire’s development.<br />
This became problematic on <strong>the</strong> day, as <strong>fires</strong> that began in one location spread rapidly; <strong>the</strong> continued<br />
reference to <strong>the</strong>ir point of origin confused many. This report refers to <strong>the</strong> <strong>fires</strong> by <strong>the</strong> names adopted by<br />
<strong>the</strong> <strong>Commission</strong> during evidence.<br />
Warnings<br />
1.44 This chapter provides limited information on warnings. Information was initially drawn from statements<br />
made by Mr Rees. The <strong>Commission</strong> received more information on warnings from 774 ABC Radio and its<br />
regional stations in Ballarat, Bendigo, Horsham, Mildura, Sale, Shepparton, Warrnambool and Wodonga. 75<br />
A short section on warnings is included for each fire to identify initial and critical warnings. However, this<br />
information is incomplete, and will be dealt with more comprehensively in later chapters. There is a more<br />
detailed discussion of warnings in Chapter 4 and some fur<strong>the</strong>r analysis of warnings for <strong>the</strong> Kilmore East<br />
fire in Chapter 9.<br />
Firefighting Resources<br />
1.45 Significant state resources were mustered to fight <strong>the</strong> <strong>fires</strong> on 7 February and for weeks <strong>the</strong>reafter.<br />
The CFA comprises 59,000 volunteers supported by over 1100 career staff, firefighters and administrative<br />
personnel. 76 The CFA indicated that on <strong>the</strong> day it engaged approximately 12,000 CFA firefighters, including<br />
those at Incident Control Centres (ICCs), and over 1000 operational vehicles. This reflects a considerable<br />
surge capacity. The State had close to 50 aircraft at its disposal but flying conditions on <strong>the</strong> day limited <strong>the</strong><br />
use of fixed-wing aircraft. 77<br />
1.46<br />
In comparison, Mr Waller indicated that DSE had 2347 public land firefighters available, with 569 ready for<br />
immediate deployment on 7 February. 78 They maintained over 1000 firefighters on firegrounds in <strong>the</strong> week<br />
leading up to 7 February and over <strong>the</strong> subsequent four weeks. 79 The firefighters are often referred to as<br />
DSE personnel but are more correctly identified as Networked Emergency Organisation (NEO) personnel. 80<br />
The Metropolitan Fire and Emergency Services Board (MFB) also contributed crews to <strong>the</strong> <strong>fires</strong>, although<br />
specific numbers were not provided to <strong>the</strong> <strong>Commission</strong>. 81<br />
48
The February <strong>2009</strong> Fires<br />
Fire Activity Prior to 7 February<br />
1.47<br />
There was considerable fire activity prior to 7 February and <strong>the</strong> account below is drawn from evidence to <strong>the</strong><br />
<strong>Commission</strong> by Mr Waller.<br />
2 February<br />
1.48<br />
On 2 February DSE firefighters were deployed at 64 <strong>fires</strong>: 20 were going, 21 were contained and 26 were<br />
considered under control. Most of <strong>the</strong>se <strong>fires</strong> were caused by lightning. The NEO committed 1295 people<br />
to firefighting. 82 (As noted above, technical fire terms are defined in <strong>the</strong> box at <strong>the</strong> beginning of this chapter.)<br />
3 February<br />
1.49 On 3 February DSE firefighters were deployed at 67 <strong>fires</strong>: 20 were going, 21 were contained and 26 were<br />
considered under control. Most of <strong>the</strong>se <strong>fires</strong> were caused by lightning. The NEO also committed 1050<br />
people to firefighting. 83<br />
1.50<br />
1.51<br />
Lightning overnight ignited Bunyip State Park (two <strong>fires</strong>) and lightning ignited ano<strong>the</strong>r fire (Nariel Ski Hut Fire),<br />
7 kilometres south-east of Nariel in north-east Victoria. 84<br />
All sectors of <strong>the</strong> Delburn fire were contained at 16:00 on 3 February but, as it was in difficult and heavily<br />
forested terrain, significant patrolling and blacking out was required on 4 February. 85<br />
4 February<br />
1.52 On 4 February DSE firefighters were deployed at 35 <strong>fires</strong>: 10 were going, 10 were contained and 15 were<br />
considered under control. The NEO committed 1045 people to firefighting. 86<br />
1.53<br />
The fire at Nariel Ski Hut in north-east Victoria continued to cause concern for firefighters. The fire was<br />
located in remote, inaccessible country, making containment difficult. Ground crew and aircraft were<br />
deployed to <strong>the</strong> fire. 87<br />
88<br />
1.54 The Bunyip fire was reported to have started at 17:00 on 4 February.<br />
5 February<br />
1.55 On 5 February DSE firefighters were deployed at 16 <strong>fires</strong>: 5 were going, 5 were contained and 6 were<br />
considered under control. The NEO committed 1051 people to firefighting. 89<br />
1.56<br />
The Bunyip fire continued to pose a significant risk, with <strong>the</strong> potential to spread rapidly if not contained.<br />
In anticipation that this fire would not be safe by 7 February, an integrated CFA/DSE Incident Management<br />
Team (IMT) was established at <strong>the</strong> Pakenham ICC. Fur<strong>the</strong>r strategies were developed to contain movement<br />
of <strong>the</strong> fire, and crews constructed mineral earth control lines around its perimeter. 90<br />
6 February<br />
1.57 On 6 February DSE firefighters were deployed at 20 <strong>fires</strong>: 9 were going, 6 were contained and 5 were<br />
considered under control. The NEO committed 1365 people to firefighting. 91 Of <strong>the</strong> going <strong>fires</strong>, <strong>the</strong> following<br />
were considered significant at that time and were being managed by DSE:<br />
1.58<br />
1.59<br />
1.60<br />
■■<br />
■■<br />
■■<br />
Bunyip <strong>fires</strong> (going) — 123 hectares<br />
Nariel Ski Hut (contained at 10:00 on 5 February but still active)<br />
Dargo — White Timber Spur (going), started during <strong>the</strong> day from lightning.<br />
For <strong>the</strong> Dargo fire, rappel crews were sent in as initial attack, with retardant laid by aerial support, but<br />
feedback was that <strong>the</strong> fire was ‘too hot’ to contain. 93 Additional crews from Dargo and heavy machinery<br />
were dispatched to assist. 94<br />
It was not expected that <strong>the</strong> Dargo fire and Nariel <strong>fires</strong> would cause ‘significant concern’ during <strong>the</strong> day of<br />
7 February, nor that <strong>the</strong> Bunyip fire would affect <strong>the</strong> power line easement through <strong>the</strong> Bunyip State Forest. 95<br />
Given that <strong>the</strong> Bunyip fire did prove to be more significant than first thought, it is explained in more detail<br />
below. The Dargo fire is not examined fur<strong>the</strong>r in this interim report.<br />
92<br />
49
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Bunyip<br />
Figure 1.7: Bunyip Ridge Track fire progression map<br />
Point of origin<br />
Nar Nar Goon<br />
Garfield<br />
Bunyip<br />
0 2 4 Kilometres<br />
Drouin<br />
Warragul<br />
Source: Exhibit 6 – Statement of Waller, Attachment 46 (WIT.002.001.0895) at 0895 96<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Fire Origin<br />
Parkland<br />
Summary information<br />
Fire Danger Index<br />
The maximum fire danger index (FDI) was 81 at Coldstream AWS at 16:34 and an FDI of<br />
111 was recorded at Latrobe Valley AWS at 13:30. 97<br />
Fatalities No fatalities 98<br />
House losses 24 houses 99<br />
50<br />
Overall area burnt 26,200 hectares 100<br />
Firefighting resources<br />
At its peak, <strong>the</strong> fire was attended by 82 NEO personnel, in addition to tankers, dozers and<br />
68 slip-on units. 101 Also deployed were 900 CFA personnel and 159 appliances; 2 air cranes<br />
(up to 7 February); and 2 water-bombing aircraft (<strong>the</strong>se were assigned concurrently as crews<br />
were deployed). 102
The February <strong>2009</strong> Fires<br />
1.61<br />
1.62<br />
1.63<br />
1.64<br />
1.65<br />
1.66<br />
The township of Drouin, on <strong>the</strong> edge of this fire area, has a population of 8000 people. The fire area<br />
encompasses <strong>the</strong> rural area of Labertouche, with a population of 1000. 103<br />
At 17:21 on 4 February, a fire at Bunyip State Park — <strong>the</strong> Bunyip Ridge Track — was reported to DSE.<br />
The point of origin was 5 kilometres north-east of Tonimbuk, in native forest. As <strong>the</strong> fire was on public<br />
land, DSE was identified as <strong>the</strong> control agency. A joint DSE/CFA IMT was established at Belgrave on<br />
4 February. 104 When it became apparent that <strong>the</strong> fire would not be readily controlled and when more<br />
severe wea<strong>the</strong>r was forecast, <strong>the</strong> IMT relocated to Pakenham ICC on 5 February. During 5–6 February,<br />
<strong>the</strong> fire grew to approximately 170 hectares. 105<br />
As <strong>the</strong> fire had not been extinguished beforehand, planning for 7 February was carried out for a ‘worst<br />
case’ outcome. It was anticipated that, under strong nor<strong>the</strong>rly winds, <strong>the</strong> fire could escape and run<br />
towards private property and o<strong>the</strong>r assets. Fire spread predictions were prepared on 6 February for <strong>the</strong><br />
period 12:00–23:00 on 7 February. These gave an indication that <strong>the</strong> fire would, without control measures,<br />
extend to at least Warragul and sou<strong>the</strong>rly to Drouin. 106<br />
At around 03:00 on 7 February, <strong>the</strong> fire breached control lines on <strong>the</strong> eastern flank, burning through<br />
Mountain Ash and mixed species forest, with considerable spotting. The fire could be seen clearly from<br />
<strong>the</strong> Mount Gordon fire tower near Marysville. 107 Crews were withdrawn because of safety concerns.<br />
Fire behaviour was erratic for around 3 hours before it moderated around daybreak. It had travelled<br />
about 7 kilometres in a south-easterly direction into adjoining farmland. 108<br />
From daybreak, aircraft bombed <strong>the</strong> fire using water and retardant to hold, for as along as possible, <strong>the</strong><br />
sou<strong>the</strong>rn movement of <strong>the</strong> firefront. Major runs occurred after midday, ultimately burning out of <strong>the</strong> forest<br />
area into cleared land. 109 The fire spotted and ran extensively through <strong>the</strong> farmlands but <strong>the</strong> sou<strong>the</strong>rn edge<br />
was largely controlled into <strong>the</strong> night of 7 February. With <strong>the</strong> wind change it moved extensively in <strong>the</strong> forest<br />
to <strong>the</strong> east. 110<br />
The fire was contained at 17:30 on 4 March, having burnt approximately 26,000 hectares, including nearly<br />
19,000 hectares of forest and park. It was declared Under Control at 14:00 on 15 March. 111<br />
Warnings<br />
1.67<br />
Key emergency and infrastructure managers were briefed on <strong>the</strong> afternoon of 6 February. Community<br />
meetings were held in towns in <strong>the</strong> predicted path of a fire escape, including Tonimbuk, Labertouche and<br />
Jindivick. All meetings were well attended by residents. 112<br />
The first external update to <strong>the</strong> community was at 20:30 on 5 February.<br />
1.68<br />
113<br />
The first urgent threat message<br />
for Garfield North, Tonimbuk, Labertouche, Robin Hood, Drouin West, Buln Buln, Tarago, Jindivick, Jindivick<br />
North, Longwarry, Longwarry North and Bunyip was issued at 13:30 on 7 February. 114<br />
51
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Delburn<br />
Figure 1.8: Delburn fire progression map<br />
Thorpdale South<br />
Yinnar<br />
Allambee East<br />
Delburn<br />
Darlimurla<br />
Dickies Hill<br />
Junction<br />
Boolarra<br />
Mirboo North<br />
0 2 5 Kilometres<br />
Budgeree<br />
Source: Exhibit 11 – Statement of Esplin, Attachment 1 (WIT.005.001.0049) at 0111 115<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Parkland<br />
Summary information<br />
Fire Danger Index<br />
Evidence not yet before <strong>the</strong> <strong>Commission</strong><br />
Fatalities No fatalities 116<br />
House losses 30 houses 117<br />
Overall area burnt<br />
Evidence not yet before <strong>the</strong> <strong>Commission</strong><br />
Firefighting resources Evidence not yet before <strong>the</strong> <strong>Commission</strong><br />
52
The February <strong>2009</strong> Fires<br />
1.69<br />
1.70<br />
1.71<br />
1.72<br />
1.73<br />
The Delburn <strong>fires</strong> were a group of three <strong>fires</strong> (Creamery Road, Ashfords Road and Delburn) that burnt in<br />
late January until <strong>the</strong>y ultimately joined toge<strong>the</strong>r. 118 The Ashfords Road fire was reported at 07:00 on 28<br />
January, <strong>the</strong> Creamery Road and Delburn <strong>fires</strong> were reported on <strong>the</strong> afternoon of 29 January. 119 The fire was<br />
initially managed by CFA as <strong>the</strong> points of origin were on private land and <strong>the</strong> initial ICC Point was at <strong>the</strong> Fish<br />
Farm, north of Boolarra. Later on 29 January, <strong>the</strong> ICC was moved to <strong>the</strong> DSE offices in Traralgon, with DSE<br />
managing <strong>the</strong> fire. 120 Overnight on 29 January <strong>the</strong> ICC was moved to Churchill. 121<br />
Poor communications between fire operations on <strong>the</strong> ground and <strong>the</strong> various ICCs (some distance away)<br />
hampered coordination of <strong>the</strong> firefighting effort. Communications around Boolarra were problematic and fire<br />
operations were assisted by <strong>the</strong> use of a Mobile Communication Van. 122 Firefighters resorted to <strong>the</strong> use of<br />
<strong>the</strong>ir mobile phones with limited success. 123 In addition, Victoria Police roadblocks prevented an ambulance,<br />
water carriers, and firefighters (without identification) from proceeding to where <strong>the</strong>y were needed. 124<br />
On 29 January, <strong>the</strong> IMT Operations Officer (<strong>the</strong> local CFA Group Officer) instructed Victoria Police to<br />
evacuate residents of McIntoshes Road, north of Boolarra. 125<br />
At 10:30 on 30 January, a town meeting was held in Boolarra where local community members were briefed<br />
on <strong>the</strong> fire by CFA representatives. 126 During this meeting, at <strong>the</strong> suggestion of <strong>the</strong> CFA Captain, <strong>the</strong> local<br />
CFA Group Officer indicated he would sound <strong>the</strong> CFA siren when <strong>the</strong> town came under ember attack. 127<br />
This occurred at about 13:30 and is fur<strong>the</strong>r described in Chapter 4. 128<br />
The <strong>fires</strong> were declared contained at 16:00 on 3 February, but because it was in difficult and heavily forested<br />
terrain, significant patrolling and blacking out was required subsequent to 3 February. 129 The Churchill fire<br />
was originally considered a division of <strong>the</strong> Delburn <strong>fires</strong> before it was independently managed. 130<br />
Source: Courtesy of The Herald & Weekly Times<br />
53
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Fire Activity on 7 February<br />
1.74<br />
The 7 February <strong>fires</strong> that ultimately proved difficult to contain and <strong>the</strong> times when <strong>the</strong>y were reported are:<br />
(going — 4 February) Bunyip 131<br />
(going — 28 to 29 January) Delburn 132<br />
11:49 Kilmore East 133<br />
12:26 Horsham 134<br />
12:36 Coleraine 135<br />
13:17 Pomborneit–Weerite 136<br />
13:33 Churchill 137<br />
15:00 Murrindindi 138<br />
15:11 Redesdale 139<br />
15:32 Narre Warren 140<br />
16:34 Bendigo 141<br />
18:09 Beechworth–Mudgegonga 142<br />
Figure 1.9: Fires adjacent to Melbourne on 7 February<br />
Bendigo<br />
Maiden Gully<br />
Seymour<br />
Mansfield<br />
Redesdale<br />
Kilmore East Complex<br />
Murrindindi Complex<br />
Melbourne<br />
Bunyip<br />
Geelong<br />
Morwell<br />
Delburn<br />
Churchill / Jeeralang<br />
Source: Exhibit 126 – Bushfire CRC Interim Report (CRC.300.001.0001_R) at 0132 143<br />
54<br />
Note: The <strong>fires</strong> around Melbourne depicted on this map<br />
produced by <strong>the</strong> Bushfire CRC, caused many of <strong>the</strong> deaths,<br />
house destruction and burnt areas on 7 February. 144<br />
Interim Final Fire Perimeter
The February <strong>2009</strong> Fires<br />
Kilmore East<br />
Figure 1.10: Kilmore East interim fire progression map<br />
Point of origin<br />
at 11:47 hrs<br />
Strath Creek<br />
Kilmore<br />
Flowerdale<br />
Clonbinane<br />
Glenburn<br />
Kinglake West<br />
Whittlesea<br />
Kinglake<br />
Marysville<br />
Narbethong<br />
St Andrews<br />
Dixons Creek<br />
Chum Creek<br />
Healesville<br />
0 4 10 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0097 145<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Approx Point of Origin<br />
Summary information<br />
Fire Danger Index The maximum FDI was greater than 100 at Kilmore Gap AWS at 14:42, and an FDI of 97.3<br />
was reached at Viewbank AWS at 16:30. 146<br />
Fatalities 121 fatalities 147<br />
House losses 1244 houses 148<br />
Overall area burnt The combined total size of <strong>the</strong> Kilmore East and Murrindindi <strong>fires</strong> was 255,300 hectares. 149<br />
Firefighting resources The peak CFA resource commitment over <strong>the</strong> Kilmore East and Murrindindi <strong>fires</strong> was 514<br />
appliances and 2750 people (<strong>the</strong> figures were not presented separately). 150 At <strong>the</strong> time <strong>the</strong><br />
fire crossed <strong>the</strong> Hume Highway at 14:00, 32 NEO tankers, 7 slip-on units, 8 dozers and<br />
9 support vehicles were on <strong>the</strong> fireground. 151 One air crane and 2 o<strong>the</strong>r helicopters were<br />
working <strong>the</strong> Kilmore East fire. 152 An unknown number of MFB appliances were deployed<br />
to <strong>the</strong> Kilmore East fire by mid-afternoon. 153<br />
55
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
1.75<br />
1.76<br />
1.77<br />
Towns in <strong>the</strong> heart of <strong>the</strong> fire area were Kinglake, Kinglake West, St Andrews and Wandong, all with<br />
a population of about 1500. Smaller towns affected included Toolangi, Dixons Creek, Chum Creek,<br />
Hazeldene and Clonbinane, each with a population between 500 and 900. The <strong>fires</strong> came close to<br />
Yarra Glen (population 2600) and Whittlesea (population 4500). 154<br />
At 11:49 <strong>the</strong> Emergency Services Telecommunications Agency (ESTA) took a call for a fire at Saunders<br />
Road, Kilmore East, in undulating pasture country interspersed with native vegetation alongside cleared<br />
and standing plantations. Initial reports were from <strong>the</strong> Mount Hickey fire tower, toge<strong>the</strong>r with reporting on<br />
<strong>the</strong> ground through Triple Zero calls. 155 At 12:08 <strong>the</strong> Kangaroo Ground fire tower operator sighted <strong>the</strong> fire and<br />
reported it to <strong>the</strong> Kangaroo Ground ICC. 156 As <strong>the</strong> point of origin was on private land, <strong>the</strong> CFA was identified<br />
as <strong>the</strong> control agency for this fire. 157 The Kilmore East fire was managed from <strong>the</strong> Kilmore ICC located at <strong>the</strong><br />
Kilmore fire station. 158 The Incident Controller was initially <strong>the</strong> local CFA Brigade Captain. 159 He was relieved<br />
by a career staff member at 16:30. 160 The Kangaroo Ground ICC operated as a Divisional Command on<br />
7 February but overnight <strong>the</strong> management of <strong>the</strong> Kilmore East and Murrindindi <strong>fires</strong> was rearranged. 161<br />
According to <strong>the</strong> evidence of Mr Rees, from <strong>the</strong> morning of 8 February, Kilmore and Kangaroo Ground ICCs<br />
managed <strong>the</strong> Kilmore East fire and Alexandra and Woori Yallock ICCs managed <strong>the</strong> Murrindindi fire. 162<br />
The fuel loads in and around areas where <strong>the</strong> Kilmore East fire burned — Mount Disappointment, Humevale,<br />
Stra<strong>the</strong>wen, Kinglake and Glenvale — were extremely high. Senior, highly experienced CFA volunteer<br />
officers inspected <strong>the</strong>se areas 3 to 4 weeks before 7 February. They were horrified by <strong>the</strong> fuel loadings;<br />
40 to 50 tonnes per hectare. There was a recognition <strong>the</strong>y would be unable to control fire in <strong>the</strong>se areas. 163<br />
The first phase of <strong>the</strong> fire<br />
164<br />
1.78 Mr Rees defined <strong>the</strong> first phase of <strong>the</strong> fire as ‘that period before it has crossed <strong>the</strong> Hume Freeway’.<br />
1.79<br />
1.80<br />
1.81<br />
At about 11:50 5 local brigades (Kilmore, Broadford, Clonbinane, Wandong and Wallan) were paged to<br />
respond to <strong>the</strong> fire. 165 At 11:51 <strong>the</strong> Kilmore Brigade received a second pager message to respond to a<br />
second fire on <strong>the</strong> Wandong–Kilmore Highway, 3 kilometres south of Kilmore. One pumper was deployed. 166<br />
At 12:02 a fur<strong>the</strong>r 7 brigades were deployed, including <strong>the</strong> Midway Forest Industry Brigade. 167 A strike team<br />
of 5 tankers responded about 30 minutes later. 168 Aircraft were also requested; however, due to <strong>the</strong> conditions<br />
at <strong>the</strong> time, aircraft were ineffective in direct attack and were used to protect assets. 169 A fire-spotting aircraft<br />
operated from about 12:30 to 13:30. 170 Two aerial line scans were conducted at 12:45 and 12:55, leading<br />
to <strong>the</strong> production at <strong>the</strong> iECC of a fire prediction map at 13:40. 171 A fur<strong>the</strong>r map based on <strong>the</strong> line scan was<br />
produced at 17:43. The line scans were not passed to <strong>the</strong> ICC at Kilmore. 172 According to Mr Rees, fur<strong>the</strong>r<br />
line scans were not able to be completed until 21:45 that evening. 173<br />
Initial efforts were directed at controlling <strong>the</strong> fire before it crossed <strong>the</strong> Hume Highway into more open<br />
country; however, this was unsuccessful. 174 At 12:45 it was requested that <strong>the</strong> Hume Highway be closed. 175<br />
The fire crossed <strong>the</strong> Hume Highway at Heathcote Junction at 13:58. 176 At that time, <strong>the</strong> firefront was<br />
reported to be 3 kilometres wide, between Clonbinane Road and <strong>the</strong> Broadford–Wandong Road. 177<br />
The fire had a very elongated shape under <strong>the</strong> influence of north-westerly winds, with a length to breadth<br />
ratio of approximately 7:1. 178 Given <strong>the</strong> terrain and fuel conditions, it was difficult for many appliances to<br />
access <strong>the</strong> fire edge from <strong>the</strong> north. 179 Significant resources were deployed to <strong>the</strong> sou<strong>the</strong>rn edge of <strong>the</strong> fire<br />
to protect townships from Whittlesea into <strong>the</strong> Yarra Valley and Healesville area. 180<br />
At <strong>the</strong> Kangaroo Ground fire tower, local wea<strong>the</strong>r observations at 13:45 were 47°C and relative humidity<br />
of 7 per cent. 181 At about 14:30 winds were gusting 60–70 kilometres per hour and <strong>the</strong> temperature was<br />
43°C. 182 Burnt leaves were falling on <strong>the</strong> fire tower as early as 14:13. 183<br />
56
The February <strong>2009</strong> Fires<br />
The second phase of <strong>the</strong> fire<br />
1.82<br />
1.83<br />
Mr Rees defined <strong>the</strong> second phase of <strong>the</strong> fire as <strong>the</strong> period after it crossed <strong>the</strong> Hume Highway and went<br />
into <strong>the</strong> slopes of Mount Disappointment. 184<br />
Between 14:00 and 17:00 <strong>the</strong> firefront travelled ano<strong>the</strong>r 6 kilometres under <strong>the</strong> influence of a 60–90<br />
kilometres per hour north-westerly wind, through timber plantations and agricultural land, before entering<br />
forest areas. It <strong>the</strong>n travelled across <strong>the</strong> Great Dividing Range at Mount Disappointment (reaching <strong>the</strong> base<br />
of Mount Disappointment at 15:30), and <strong>the</strong>n onto <strong>the</strong> Whittlesea–Yea Road, just south of <strong>the</strong> settlement<br />
of Kinglake West. 185 Spotting was reported at Smith Gully at 16:00. 186 Between Wandong and Kinglake,<br />
<strong>the</strong> forest fuels of Stringybark and Peppermint species, with pockets of Manna Gum, Grey Gum and<br />
Mountain Ash, resulted in significant spotting. 187 The fire travelled at up to 8 kilometres per hour to <strong>the</strong><br />
crest of Mount Disappointment. 188<br />
189<br />
1.84 On 7 February Arthurs Creek and Whittlesea CFA Brigades were not attached to strike teams. They were<br />
operating independently in <strong>the</strong>ir areas of responsibility. 190 The Arthurs Creek–Stra<strong>the</strong>wen Brigade Captain<br />
learnt of <strong>the</strong> Kilmore East fire from his Group Officer ‘some time after midday’. 191 He did not receive any<br />
advice on <strong>the</strong> fire from <strong>the</strong> Kilmore ICC or <strong>the</strong> Kangaroo Ground Divisional Control Centre. 192 His brigade first<br />
responded to fire (after several false alarms) at 15:43. 193 He received a ‘red flag’ warning at 17:45 of a pending<br />
‘very strong sou<strong>the</strong>rly change...in <strong>the</strong> next 10 minutes’. 194 Once spotting commenced he was unable to<br />
access Stra<strong>the</strong>wen but eventually drove into <strong>the</strong> hamlet at about 19:00. 195 Nearly every structure in <strong>the</strong> hamlet<br />
was burnt. 196 Analysis by <strong>the</strong> Bushfire Cooperative Research Centre (Bushfire CRC) suggests that <strong>the</strong> <strong>fires</strong><br />
reached Stra<strong>the</strong>wen from a north-westerly wind and also via a major firefront approaching from <strong>the</strong> south. 197<br />
1.85<br />
At Kinglake, power failed across <strong>the</strong> town at 16:55 and soon after smoke was heavily entering <strong>the</strong> town<br />
from <strong>the</strong> direction of St Andrews. 198 By 17:30 Kinglake was under heavy ember attack with spot <strong>fires</strong><br />
occurring close to <strong>the</strong> CFA station. It was dark. 199 Embers started burning in <strong>the</strong> town at 17:45. Ms Sharon<br />
McCulloch, owner and operator of <strong>the</strong> National Park Hotel described <strong>the</strong> experience: ‘Embers were now<br />
hailing down and being blown with such force onto <strong>the</strong> hotel roof that I thought <strong>the</strong>re was every chance of<br />
something in or around <strong>the</strong> hotel catching fire’. 200 Ms McCulloch and her husband managed to save <strong>the</strong>ir<br />
hotel, although this meant <strong>the</strong>y could not actively protect <strong>the</strong>ir home. It survived. On reflection, she said:<br />
There really didn’t seem to be any rhyme or reason why some buildings burnt and o<strong>the</strong>rs didn’t. The<br />
<strong>fires</strong>torm was indiscriminate. Some people stayed to fight <strong>the</strong> fire and lost, some people evacuated and<br />
<strong>the</strong>ir houses remain standing. 201<br />
1.86<br />
By <strong>the</strong> time <strong>the</strong> fire had reached <strong>the</strong> Whittlesea–Yea Road, it was reported to be approximately 6 kilometres<br />
wide. 202 Between 17:00 and 18:00 spot <strong>fires</strong> were reported at Humevale, St Andrews (at 17:46) and<br />
Steels Creek. 203 The Kangaroo Ground fire tower operators, Ms Colleen Keating and Mr Gavin McCormack,<br />
made <strong>the</strong> following observations:<br />
… it just appeared out of nowhere … It appeared to have, like, jumped 10, 15 km, just <strong>the</strong> spotting …<br />
Then it took off like basically a main fire … It took off like a rocket. 204<br />
And subsequently:<br />
A spotfire … is normally a gradual development. These were almost a spontaneous development into<br />
a large fire. 205<br />
1.87<br />
Residents defending <strong>the</strong>ir homes described <strong>the</strong> <strong>fires</strong> from inside <strong>the</strong>ir houses. Mr John O’Neill,<br />
of Steels Creek, described <strong>the</strong> experience of his family:<br />
Almost immediately, <strong>the</strong> fire front hit us … Burning embers slapped into our windows and <strong>the</strong> rest of<br />
<strong>the</strong> house ... it was like being inside a washing machine on spin cycle, and full of fire and embers … <strong>the</strong><br />
firefront lasted about 45 minutes … we spent <strong>the</strong> following seven hours fighting <strong>the</strong> <strong>fires</strong> and defending<br />
our main house. 206<br />
57
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
1.88<br />
The first reports of casualties were received at <strong>the</strong> Kangaroo Ground Divisional Control Centre at 17:00<br />
from <strong>the</strong> Arthurs Creek Captain. 207 The fire reached <strong>the</strong> National Park Hotel on Main Road, Kinglake at<br />
approximately 17:45. 208 The Kangaroo Ground tower had advised by radio of <strong>the</strong> wind change occurring at<br />
Kangaroo Ground at 17:43. 209 At 17:55 <strong>the</strong> tower recorded <strong>the</strong> wind change blowing at over 90 kilometres<br />
per hour and reported it to <strong>the</strong> fireground. 210 By 18:00 CFA tankers, pumpers and communications vehicles<br />
were responding to new <strong>fires</strong> at Humevale, Stra<strong>the</strong>wen, Arthurs Creek, Yarra Glen, Gruyere and Healesville.<br />
All of <strong>the</strong>se <strong>fires</strong> were caused by spotting. 211<br />
212<br />
1.89 At 18:01 <strong>the</strong> wind change had come through St Andrews. When <strong>the</strong> south-westerly wind change reached<br />
<strong>the</strong>se <strong>fires</strong> between 18:00 and 19:00, it was not possible to secure <strong>the</strong> eastern flank of <strong>the</strong> fire due to <strong>the</strong><br />
heavy forest and plantation fuel loads. 213 The main fire, and <strong>the</strong> subsequent spot <strong>fires</strong>, headed in a nor<strong>the</strong>asterly<br />
direction, burning through heavy fuels. 214 At 19:40 <strong>the</strong> fire was recorded in Flowerdale. 215 The Kilmore<br />
East–Wandong section of <strong>the</strong> fire headed generally north along <strong>the</strong> Hume Highway towards Reedy Creek<br />
impacting at 20:00, burning through <strong>the</strong> remainder of <strong>the</strong> Wallaby Creek catchment, <strong>the</strong> Kinglake National<br />
Park and <strong>the</strong> Mount Disappointment Forest. 216 Progressively through <strong>the</strong> evening it impacted <strong>the</strong> settlements<br />
of Hazeldene and Silver Creek. The fire was recorded at Mudgegonga at about 22:00. 217<br />
1.90<br />
1.91<br />
From Stra<strong>the</strong>wen and Humevale, <strong>the</strong> fire headed generally north, through Kinglake central, Castella and<br />
along <strong>the</strong> Melba Highway towards <strong>the</strong> settlement of Glenburn. The Kilmore East fire did not join with <strong>the</strong><br />
Murrindindi fire on 7 February. 218 The fire was never under control on 7 February. 219<br />
Throughout <strong>the</strong> night of 7 February, and <strong>the</strong> following days, as <strong>the</strong> fire reached grassland, it was stopped<br />
and <strong>the</strong> edge of <strong>the</strong> fire progressively secured. However, in forested areas, particularly in <strong>the</strong> Maroondah<br />
catchment, Toolangi State Forest and Yarra Ranges National Park, containment was difficult. In particular,<br />
<strong>the</strong> fire caused considerable concern around <strong>the</strong> Healesville area over <strong>the</strong> next few days as containment<br />
works, including back burning, continued. 220 The fire was listed as contained on 16 February. 221<br />
Warnings<br />
58<br />
1.92<br />
1.93<br />
1.94<br />
1.95<br />
1.96<br />
Some warning messages for <strong>the</strong> Kilmore East fire were issued from <strong>the</strong> Seymour Regional Emergency<br />
Coordination Centre (authorised by <strong>the</strong> Regional Coordinator) and from <strong>the</strong> iECC (authorised by <strong>the</strong> State<br />
Duty Officer), in addition to those issued from Kilmore ICC. 222<br />
At 12:40 an initial awareness message was issued for <strong>the</strong> Kilmore East fire for Kilmore East, Wandong and<br />
Clonbinane. 223 Urgent threat messages were issued progressively for communities to <strong>the</strong> south-east and<br />
east of <strong>the</strong> fire, and subsequently updated as fur<strong>the</strong>r information was available. 224 At 13:59 an urgent<br />
threat message was issued for Wandong. 225 At 14:40 an urgent threat message was posted to <strong>the</strong> CFA<br />
website for <strong>the</strong> community of Wandong, and messages were progressively posted for <strong>the</strong> communities of<br />
Hidden Valley (at 15:05), Whittlesea (at 15:33), Heathcote Junction and Upper Plenty (at 16:05), Humevale,<br />
Arthurs Creek, Eden Park, Nutfield and Doreen (at 16:35) and for communities from Kinglake to<br />
Flowerdale (at 17:55). 226<br />
At 17:20 an urgent threat message was released from Kangaroo Ground Divisional Control Centre indicating<br />
Wandong, Wallan, Wallan East, Eden Park, Whittlesea, Humevale, Bruces Creek, Upper Plenty, Kinglake<br />
West, Pheasant Creek, Smiths Gully, Kinglake, Flowerdale, Glenburn and Hurstbridge might be affected<br />
by <strong>the</strong> fire. 227 It also referred to road closures. 228 Urgent threat messages had been drafted earlier in <strong>the</strong><br />
afternoon (from 14:30) at Kangaroo Ground Divisional Control Centre, but had not been released as <strong>the</strong><br />
fire was being controlled from <strong>the</strong> ICC at Kilmore. 229<br />
At 18:45, an urgent threat message posted to <strong>the</strong> CFA website noted that Wandong, Wallan, Wallan East,<br />
Eden Park, Whittlesea, Humevale, Bruces Creek, Upper Plenty, Kinglake West, Pheasant Creek, Smiths<br />
Gully, Kinglake, Flowerdale, Glenburn and Hurstbridge might be directly affected by fire. 230<br />
As <strong>the</strong> fire continued to burn through <strong>the</strong> night, an urgent threat message was posted to <strong>the</strong> CFA website<br />
at 22:32 advising of possible direct attack on Broadford, Broadford East in <strong>the</strong> area of O’Gradys Road,<br />
south of Broadford, Broadford–Wandong/Sunday Creek Road, Reedy Creek and Tyaak. Residents were<br />
advised not to expect firefighting trucks to be in attendance if <strong>the</strong> firefront approached <strong>the</strong>ir properties. 231
The February <strong>2009</strong> Fires<br />
1.97<br />
1.98<br />
On <strong>the</strong> morning of 8 February, <strong>the</strong> fire was described as burning in <strong>the</strong> Yarra Valley near Kinglake, in a nor<strong>the</strong>asterly<br />
direction. At 04:38 an urgent threat message was posted to <strong>the</strong> CFA website stating that Kinglake,<br />
Kinglake West, Toolangi, Glenburn, Stra<strong>the</strong>wen, Chum Creek, Dixons Creek, Castella, Pheasant Creek,<br />
Doreen, Yan Yean, Woodstock, Mernda, Mittons Bridge, Hurstbridge, St Andrews, Panton Hills,<br />
Arthurs Creek, Smiths Gully, Christmas Hills, Healesville, Yarra Glen, Coldstream, Tarrawarra and<br />
Steels Creek had been or might be directly affected by this fire. 232<br />
Fur<strong>the</strong>r messages posted to <strong>the</strong> CFA website at 09:29 on 8 February advised that <strong>the</strong> fire was burning<br />
towards <strong>the</strong> Glenburn area, in particular Glenburn and settlements to <strong>the</strong> north and north-east along <strong>the</strong><br />
Melba Highway, and Yea River Valley towards Murrindindi. Warnings were also posted for Yea, Seymour<br />
and Toolangi. 233 Warnings issued for <strong>the</strong> Kilmore East fire are discussed fur<strong>the</strong>r in Chapter 9.<br />
Source: Pat Scala, courtesy of The Age<br />
59
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Horsham<br />
Figure 1.11: Horsham interim fire progression map<br />
Point of origin<br />
at 12:24 hrs<br />
Horsham<br />
Approx 12:53 hrs<br />
Wind change<br />
at 16:29 hrs<br />
Approx 13:19 hrs<br />
Approx 14:15 hrs<br />
0 2 4 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0099 234<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Fire Origin<br />
Summary information<br />
Fire Danger Index The maximum FDI was greater than 100 at Horsham AWS at 14:00 and again at 14:30. 235<br />
Fatalities No fatalities 236<br />
House losses 68 houses 237<br />
Overall area burnt 2200 hectares 238<br />
Firefighting resources<br />
The peak CFA commitment was 41 appliances and 253 CFA personnel. DSE crews from <strong>the</strong><br />
Horsham area also assisted. Local water-bombing aircraft were used when wea<strong>the</strong>r conditions<br />
permitted. 239<br />
60
The February <strong>2009</strong> Fires<br />
1.99<br />
This fire occurred on <strong>the</strong> outskirts of Horsham, a regional centre of over 13,000 people. The area directly<br />
affected by <strong>the</strong> fire was Haven, with a population of 940 people. 240<br />
1.100 At 12:26 ESTA took a call for a fire at Remlaw Road, Vectis, west of Horsham, burning through crop<br />
and grazing land in a south-easterly direction. 241 As <strong>the</strong> point of origin was on private land, <strong>the</strong> CFA was<br />
nominated as <strong>the</strong> control agency. 242 An ICC located at <strong>the</strong> DSE Office in Horsham managed <strong>the</strong> fire. 243<br />
1.101 Tankers were deployed from 4 local brigades and subsequently, at 12:33, a fur<strong>the</strong>r 6 tankers were<br />
requested. 244 Aircraft were requested at 12:46. 245<br />
1.102 The light-to-moderate fuel loads meant <strong>the</strong> fire was of moderate-to-high intensity, but it was fast running<br />
in a south-easterly direction. At approximately 13:15, <strong>the</strong> fire was entering <strong>the</strong> Wimmera River area and,<br />
as <strong>the</strong> fire burned through <strong>the</strong> dry river bed and surrounding river flats, <strong>the</strong> River Red Gums and associated<br />
scrub provided elevated fuels, resulting in spotting being reported around <strong>the</strong> Haven area. 246 The fire burned<br />
<strong>the</strong> Horsham Golf Club, destroying <strong>the</strong> club house and burning <strong>the</strong> rough areas of <strong>the</strong> golf course. 247<br />
248<br />
1.103 At 14:15 <strong>the</strong> fire’s run to <strong>the</strong> south was stopped. Most of <strong>the</strong> eastern flank of <strong>the</strong> fire was contained,<br />
although a narrow section of <strong>the</strong> fire broke out with <strong>the</strong> wind change, which moved through Horsham<br />
at 16:28. 249 Had most of <strong>the</strong> eastern flank not been secured, <strong>the</strong> town of Horsham might have been<br />
threatened. 250 By 16:52 <strong>the</strong> fire was reported to have crossed <strong>the</strong> Western Highway and was subsequently<br />
controlled and stopped at various land features, including roadside and irrigation channels. 251 At 18:20 it<br />
was reported that <strong>the</strong> fire was stopped at <strong>the</strong> Horsham–Lubeck Road. 252 It was listed as contained at<br />
15:31 on 8 February. 253<br />
Warnings<br />
1.104 An urgent threat message for <strong>the</strong> communities of Haven and McKenzie Creek, through to Wonwondah,<br />
west of Horsham, was posted to <strong>the</strong> CFA website at 13:20. 254 An urgent threat message for <strong>the</strong><br />
communities of Haven, McKenzie Creek, Bungalally, Green Lake and west of Horsham, was posted to<br />
<strong>the</strong> CFA website at 14:56. This warning noted that when <strong>the</strong> wind change came through <strong>the</strong> area, <strong>the</strong><br />
communities on <strong>the</strong> eastern side of <strong>the</strong> Western Highway between Drung Drung South and Horsham<br />
might be under threat. A fur<strong>the</strong>r message providing information on <strong>the</strong> progress of <strong>the</strong> wind change was<br />
posted at approximately 16:35. An alert message was posted at 22:55 advising of fire suppression activity<br />
continuing in <strong>the</strong> area. 255<br />
61
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Coleraine<br />
Figure 1.12: Coleraine interim fire progression map<br />
Approx 15:21 hrs<br />
Point of origin<br />
at 12:35 hrs<br />
Wind change<br />
at 13:23 hrs<br />
Coleraine<br />
0 2 4 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0101 256<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Approx Point of Origin<br />
Summary information<br />
Fire Danger Index<br />
The maximum FDI was greater than100 at Hamilton AWS at 13:00 and an FDI greater than<br />
100 was reached at Casterton AWS at 12:00. 257<br />
Fatalities No fatalities 258<br />
House losses 1 house (as reported on 8 February) 259<br />
Overall area burnt 775 hectares 260<br />
Firefighting resources<br />
Resources were progressively deployed from local brigades and o<strong>the</strong>r regions. At <strong>the</strong> fire’s<br />
peak, <strong>the</strong>re were 55 CFA appliances attending, including a number of forest industry brigade<br />
vehicles, with approximately 280 personnel. At least 35 DSE fire personnel attended this fire. 261<br />
62
The February <strong>2009</strong> Fires<br />
1.105 At 12:36 ESTA took a call about a grass fire in undulating grazing land adjacent to <strong>the</strong> Glenelg Highway,<br />
north-west of Coleraine. 262 As <strong>the</strong> point of origin was on private land, <strong>the</strong> CFA was nominated as <strong>the</strong> control<br />
agency. 263 A CFA ICC, located at <strong>the</strong> DSE Heywood offices, managed <strong>the</strong> fire. 264<br />
265<br />
1.106 At 12:36 5 CFA tankers were deployed and 2 water-bombing aircraft were requested at 12:42. Local<br />
reports indicated that <strong>the</strong> fire was growing rapidly and at 12:43 a fur<strong>the</strong>r 8 tankers were requested. 266<br />
267<br />
1.107 The fire behaved typically for a fire occurring in <strong>the</strong> western districts, albeit in extreme wea<strong>the</strong>r conditions.<br />
The countryside is undulating grazing land and fuel loads were medium to relatively heavy. 268 The fire ran<br />
through a dry creek bed to <strong>the</strong> south-west of <strong>the</strong> town and <strong>the</strong>n, following <strong>the</strong> wind change at 13:23,<br />
burned in a north-easterly direction. 269 The eastern flank of <strong>the</strong> fire was not contained before <strong>the</strong> wind<br />
change. The timing of <strong>the</strong> wind change was critical to <strong>the</strong> safety of <strong>the</strong> town. Fire behaviour was at its<br />
worst in <strong>the</strong> heavy fuel areas with flame heights reported at approximately 12 metres. 270<br />
1.108 There was concern that <strong>the</strong> wind change would push <strong>the</strong> fire into <strong>the</strong> town of Coleraine. Plans to evacuate<br />
<strong>the</strong> Coleraine District Health Service were made although evacuation did not eventuate. 271 The fire was<br />
stopped at its most easterly point at 15:21, and was formally listed as contained at 17:21. 272<br />
Warnings<br />
1.109 The first urgent threat message for this fire was posted to <strong>the</strong> CFA website at 13:30 for Muntham, Coleraine<br />
and Hilgay. The message stated that <strong>the</strong> fire was burning immediately west of Coleraine, had jumped <strong>the</strong><br />
Glenelg Highway, and was burning in an easterly direction. A prior alert or awareness message was not<br />
issued for this fire. Updated urgent threat messages were provided as <strong>the</strong> fire progressed. At 18:16 a threat<br />
downgrade message was posted to <strong>the</strong> CFA website, advising that <strong>the</strong> fire was contained. 273<br />
63
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Pomborneit–Weerite<br />
Figure 1.13: Pomborneit–Weerite interim fire progression map<br />
Point of origin<br />
at 13:15 hrs<br />
Lake Corangamite<br />
Weerite<br />
Approx 15:07 hrs<br />
Wind change<br />
at 14:15–15:10 hrs<br />
Lake Purrumbete<br />
Pomborneit<br />
North<br />
Pomborneit<br />
0 2 4 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0103 274<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Fire Origin<br />
Summary information<br />
Fire Danger Index The maximum FDI was greater than 100 at Mortlake AWS at 13:30. 275<br />
Fatalities No fatalities 276<br />
Overall area burnt 1300 hectares 277<br />
Firefighting resources The CFA deployed 42 appliances and 298 personnel to this fire. 278<br />
64
The February <strong>2009</strong> Fires<br />
1.110 At 13:17 an initial call was recorded of a grass and scrub fire west of Pomborneit/Stony Rises and south of<br />
<strong>the</strong> Princes Highway at Weerite. 279 As <strong>the</strong> point of origin was on private land, <strong>the</strong> CFA was identified as <strong>the</strong><br />
control agency for <strong>the</strong> fire. 280 The ICC was located at Colac in a temporary DSE facility. 281<br />
1.111 At 13:18 5 local brigades were paged to respond to <strong>the</strong> fire. At 13:21, aircraft were requested although<br />
subsequent advice at 13:42 indicated that <strong>the</strong> prevailing wea<strong>the</strong>r conditions meant aircraft could not<br />
operate. Police were requested to close roads. 282<br />
1.112 The fire burned south, crossing and damaging <strong>the</strong> Geelong–Warrnambool railway line. At 13:42 VLine<br />
was contacted to stop trains using <strong>the</strong> damaged railway line. 283 Ground resources were progressively<br />
increased to protect <strong>the</strong> Swan Marsh township. 284 The south‐west wind change was reported as passing<br />
Mount Pardon at 14:15, which is about 5 kilometres south of <strong>the</strong> fire area. 285 When it reached <strong>the</strong> fire, <strong>the</strong><br />
direction of <strong>the</strong> wind changed and headed north-east towards Lake Corangamite. As a result, <strong>the</strong> additional<br />
resources protecting Swan Marsh were redeployed for direct attack. At approximately 15:07 <strong>the</strong> fire crossed<br />
Pomborneit Foxhow Road and continued unchecked in a north-easterly direction until 16:35, when it was<br />
reported as stopped. 286<br />
287<br />
1.113 The fire was listed as contained at 12:11 on 8 February.<br />
Warnings<br />
1.114 The first urgent threat message was posted to <strong>the</strong> CFA website at 14:15 for ‘Scollers Road, Caters Road<br />
Settlement and Swan Marsh [sic]’. At 14:25 an awareness message was posted for Pomborneit, Stonyford<br />
and Swan Marsh. 288 At 19:18 a message was posted on <strong>the</strong> CFA website advising that <strong>the</strong> threat had been<br />
downgraded to alert status. 289<br />
Source: © Newspix / Renee Nowytarger<br />
65
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Churchill<br />
Figure 1.14: Churchill interim fire progression map<br />
Wind change<br />
at 18:16 hrs<br />
18:30 hrs<br />
18:32 hrs<br />
Point of origin<br />
at 13:32 hrs<br />
Churchill 22:18 hrs<br />
14:45 hrs<br />
15:20 hrs<br />
14:10 hrs<br />
14:15 hrs<br />
Spot Fire 15:56 hrs<br />
18:20 hrs<br />
18:22 hrs<br />
18:40 hrs<br />
19:04 hrs<br />
16:24 hrs<br />
18:40 hrs<br />
16:50 hrs<br />
17:11 hrs<br />
18:36 hrs<br />
18:15 hrs<br />
19:00 hrs<br />
18:20 hrs<br />
18:55 hrs<br />
18:45 hrs<br />
20:10 hrs<br />
17:13 hrs<br />
17:18 hrs<br />
17:28 hrs<br />
Spot Fire 15:00 hrs<br />
Spot Fire 19:39 hrs<br />
Spot Fire 20:36 hrs<br />
Spot Fire 18:00 hrs<br />
Spot Fire 18:05 hrs<br />
Spot Fire 15:02 hrs<br />
0 4 8 Kilometres<br />
Wind change<br />
at 18:06 hrs<br />
Yarram<br />
Spot Fire 18:04 hrs<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0105 290<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Approx Point of Origin<br />
Parkland<br />
Summary information<br />
Fire Danger Index<br />
The maximum FDI was 82.7 at Latrobe Valley Aerodrome at 16:00 and an FDI greater than<br />
100 was reached at Yarram Airport AWS at 14:00. 291<br />
Fatalities 11 fatalities 292<br />
House losses 247 houses 293<br />
Overall area burnt 24,500 hectares 294<br />
Firefighting resources The peak CFA commitment to this fire was 227 appliances and 1250 personnel. 295<br />
66
The February <strong>2009</strong> Fires<br />
1.115<br />
The main communities affected in this fire were Callignee (population 495) and Hazelwood South<br />
(population 533). 296<br />
1.116 At 13:33 a fire was reported in open country but rapidly spreading uphill into a Blue Gum plantation on<br />
<strong>the</strong> south side of Glendonald Road, 3 kilometres south-east of Churchill. 297 This report was received<br />
concurrently with one from <strong>the</strong> public direct to <strong>the</strong> Churchill CFA Fire Station. As <strong>the</strong> point of origin was on<br />
private land, <strong>the</strong> CFA was identified as <strong>the</strong> control agency for <strong>the</strong> fire. 298 The ICC was located at Traralgon,<br />
initially as a Divisional headquarters, <strong>the</strong>n as an ICC. 299 The Churchill fire was originally considered a division<br />
of <strong>the</strong> Delburn <strong>fires</strong> before it was independently managed. 300<br />
1.117 At 13:35 4 brigades were paged to respond to <strong>the</strong> fire. On arrival at 13:39 additional tankers were<br />
requested. At 13:36 aircraft were requested although, at <strong>the</strong> peak of <strong>the</strong> fire, aircraft were unable to operate<br />
because of wea<strong>the</strong>r conditions. The fire quickly burned into pine and gum plantations to <strong>the</strong> south and<br />
south-east, through steep gullies, north facing slopes and valleys of <strong>the</strong> Strezlecki Ranges. 301 Fuel loads<br />
were high due to a mixture of natural and plantation fuels. The main fire front travelled 7 kilometres in<br />
50 minutes and, by 14:20, <strong>the</strong> fire had reached Jeeralong Creek West Branch. 302<br />
1.118<br />
Spotting was reported up to 20 kilometres ahead of <strong>the</strong> fire outside Yarram and <strong>the</strong>n, by 14:40 near Balook.<br />
303<br />
At 15:02 a spot fire was reported at Jack River, 6 kilometres west of Yarram. At 16:50 <strong>the</strong>re was reporting<br />
of multiple spot <strong>fires</strong> around <strong>the</strong> township of Yarram. 304 By 17:15 <strong>the</strong> main firefront was approaching Mount<br />
Tassie, with spot <strong>fires</strong> on <strong>the</strong> east side of <strong>the</strong> mountain. 305<br />
1.119 Between 18:00 and 18:30 <strong>the</strong> wind change altered <strong>the</strong> direction of <strong>the</strong> fire, resulting in continued spotting<br />
but in a north-easterly direction towards Callignee, Traralgon South and Koornalla. 306 At 18:04 a spot fire<br />
was reported 9 kilometres east of Yarram on <strong>the</strong> South Gippsland Highway. At 18:05 a fur<strong>the</strong>r spot fire was<br />
reported on <strong>the</strong> Hyland Highway, 4 kilometres north of Yarram. It burnt into <strong>the</strong> Won Wron State Forest.<br />
At 18:10 a spot fire was reported on <strong>the</strong> Currajung Woodside Road, 4 kilometres east of Carrajung South. 307<br />
1.120<br />
The wind change meant that 13 kilometres of <strong>the</strong> eastern flank, from near Churchill to Mount Tassie,<br />
was burning through steep, inaccessible country that carried high fuel loads of native forest and pine<br />
and Blue Gum plantations. 308 This had a progressive impact on areas such as Hazelwood South, Koornalla,<br />
Traralgon South, Callignee, Callignee South, Callignee North, Jeeralang North, Devon, Yarram and<br />
Carrajung South. 309 By around 20:00 <strong>the</strong> rate of spread had slowed; however, <strong>the</strong> fire was continuing<br />
to spread in a north-easterly direction. 310 While much of <strong>the</strong> fire was stopped on 8 February, some areas<br />
remained inaccessible and burning continued in heavy fuel areas. The fire was listed as contained at<br />
17:00 on 19 February. 311<br />
1.121 Loy Yang Power Station was identified as strategic infrastructure at risk, and substantial planning for its<br />
protection was undertaken. Ultimately, <strong>the</strong> fire did not affect this area but <strong>the</strong>re was concern about <strong>the</strong><br />
critical communications assets on Mount Tassie, including Loy Yang system controls and a variety of<br />
commercial and emergency communication transmitters. 312 The ABC FM transmitter failed on<br />
Mount Tassie; however, <strong>the</strong> ABC continued transmitting on <strong>the</strong> AM band. 313<br />
Warnings<br />
314<br />
1.122 From 13:51 <strong>the</strong>re were a series of alerts and urgent threat messages. An urgent threat message<br />
was posted to <strong>the</strong> CFA website at 14:05 stating that <strong>the</strong> communities of Hazelwood South, Jeeralang,<br />
Jeeralang North and Jeeralang Junction might be affected by fire. At 15:45 alert messages were posted<br />
for <strong>the</strong> communities of Jumbuck, Le Roy, Budgeree East, Valley View, Traralgon South and Balook, and<br />
an urgent threat message was extended to <strong>the</strong> communities of Balook, Le Roy, Jumbuck, Valley View<br />
and Budgeree East. 315<br />
1.123 At 16:20 alert messages were posted to <strong>the</strong> CFA website for <strong>the</strong> communities of Madalya, Womerah,<br />
Callignee, Callignee South, Callignee North, Carrajung, Carrajung South and Won Wron. These were<br />
upgraded to an urgent threat message for Womerah and Macks Creek at 16:30. The communities of<br />
Devon North and Yarram were also included in urgent threat messages at 16:40. 316<br />
67
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
1.124 At 17:05 Woodside, Alberton, Tarraville, Manns Beach, Robertsons Beach, Woodside Beach and<br />
McLoughlins Beach were included in alert messages. At 17:28 an urgent threat message was posted for<br />
<strong>the</strong> communities of Alberton, Tarraville, Port Albert, Langsborough, Manns Beach and Robertsons Beach.<br />
At 18:03 Devon North, Yarram and Calrossie were added to this warning, as were campers in <strong>the</strong> coastal<br />
area between Port Albert and Woodside Beach. 317<br />
1.125 At 18:10, with <strong>the</strong> onset of <strong>the</strong> wind change, fur<strong>the</strong>r alert messages were posted listing communities such as<br />
Willung South, Willung, Stradbroke, Stradbroke West, Giffard West, Darriman, Hiamdale and Gormandale. 318<br />
1.126 Following <strong>the</strong> wind change at 20:25 an urgent threat message was issued advising that <strong>the</strong> Glendonald<br />
Road fire was currently burning in and around Traralgon South, Callignee, Callignee North and Callignee South.<br />
At 20:47 <strong>the</strong> communities of Carrajung South and Carrajung Lower were included in an urgent threat message<br />
advising of impact in 20 minutes or less. At 01:05 on 8 February, following an unexpected change in conditions,<br />
fur<strong>the</strong>r urgent threat messages were posted for <strong>the</strong> townships of Carrajung South, Carrajung Lower, Won Wron<br />
and Woodside. 319 Messages were issued to lower alert levels, when appropriate, on 8 February. 320<br />
68<br />
Source: Courtesy of The Herald & Weekly Times
The February <strong>2009</strong> Fires<br />
Murrindindi<br />
Figure 1.15: Murrindindi fire progression map<br />
Yea<br />
Limestone<br />
Eildon<br />
Taggerty<br />
Rubicon<br />
Murrindindi<br />
Point of origin<br />
Glenburn<br />
Buxton<br />
Enoch Point<br />
Toolangi<br />
Marysville<br />
Narbethong<br />
Dixon’s<br />
Creek<br />
Chum<br />
Creek<br />
Healesville<br />
0 4 8 Kilometres<br />
Source: Exhibit 6 – Statement of Waller, Attachment 46 (WIT.002.001.0895) at 0896 321<br />
Murrindindi Bushfire<br />
Kilmore Bushfire<br />
Roads<br />
Fire Origin<br />
Parkland<br />
Fire Tower<br />
Summary information<br />
Fire Danger Index<br />
The maximum FDI was 81 at Coldstream AWS at 16:34 and an FDI of 92 was reached at<br />
Eildon AWS at 16:31. 322<br />
Fatalities 38 fatalities 323<br />
House losses 590 houses 325<br />
In addition, on 17 February one ACT firefighter died as a result of a fallen tree branch. 324<br />
Overall area burnt 168,542 hectares 326<br />
Firefighting resources<br />
Records show that 167 NEO personnel, 4 CFA personnel, 2 dozers and 3 slip-on units<br />
attended <strong>the</strong> fire on 7 February. This increased significantly through to 12 February, by which<br />
date 660 NEO personnel, 1 dozer, 1 tanker and 94 slip-on units were deployed, along with<br />
970 CFA personnel and 187 tankers. 327<br />
69
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
1.127 Marysville was most affected by this fire, with a resident population of 517. The area surrounding Marysville<br />
has a population of 1200 people. 328<br />
1.128 Just before 15:00 a fire at Murrindindi Mill was reported to <strong>the</strong> Broadford and Alexandra DSE offices from<br />
<strong>the</strong> Mount Despair fire lookout tower. 329 The point of origin was estimated to be 2 kilometres south of<br />
Murrindindi on private land within <strong>the</strong> fire protected area, 330 and while this was not clear in <strong>the</strong> early stages of<br />
<strong>the</strong> fire, DSE became <strong>the</strong> control agency for this fire. 331 Fire control was through a DSE ICC at Alexandra. 332<br />
DSE had already deployed IMT personnel from Alexandra to support <strong>the</strong> CFA IMT managing <strong>the</strong> Kilmore<br />
East fire. 333 This included information and situation officers. Because of this, DSE advised that <strong>the</strong> Alexandra<br />
IMT was initially under-resourced. 334<br />
335<br />
1.129 CFA resources were deployed from <strong>the</strong> Yea Group and were <strong>the</strong> first to arrive at <strong>the</strong> fire. All local DSE<br />
fire line resources that had not been deployed to <strong>the</strong> Kilmore East fire (which was reported at 11:49), were<br />
deployed to <strong>the</strong> Murrindindi fire (being crews from Toolangi, Alexandra and Broadford). 336 The Toolangi DSE<br />
crew is recorded as responding at 15:00, with an estimated time of arrival of 15:30, although <strong>the</strong> first DSE<br />
resources were recorded as arriving at <strong>the</strong> fire at around 16:15. 337 Care was taken not to direct crews to<br />
take roads that might be affected by this fire, with <strong>the</strong> Alexandra crew taking a circuitous route. This initial<br />
attack on <strong>the</strong> fire included 6 personnel, 1 tanker, 2 slip-on units and 1 ‘first attack’ dozer. 338<br />
1.130 Early observations reported by <strong>the</strong> IMT were of severe fire behaviour, with flames 20 metres high and an<br />
estimated rate of spread of 8 kilometres per hour. Spotting was estimated at 5 kilometres. 339 Post-fire<br />
analysis indicated this was under-estimated — <strong>the</strong> likely spread of <strong>the</strong> fire was around 12 kilometres per<br />
hour with spotting to 15 kilometres. 340 The Alexandra DSE Office estimated a rate of spread of 8 kilometres<br />
per hour earlier in <strong>the</strong> day, based on <strong>the</strong> wea<strong>the</strong>r forecast. This was twice <strong>the</strong> speed of fire spread normally<br />
experienced in forest fire. 341<br />
1.131 The severity of <strong>the</strong> fire behaviour precluded direct attack, and both DSE and CFA resources concentrated<br />
on community and asset protection. Aerial support was sought to manage fire spread. 342<br />
1.132 The fire spread rapidly into <strong>the</strong> forests of <strong>the</strong> Black Range, between <strong>the</strong> Melba and Maroondah Highways,<br />
and began spotting when it reached <strong>the</strong> top of <strong>the</strong> range. In fact, <strong>the</strong> fire was burning in forest 3 kilometres<br />
from its point of origin, until it reached <strong>the</strong> outskirts of Narbethong, a fur<strong>the</strong>r 17 kilometres away. Additional<br />
response resources were mobilised. 343 The Mount Gordon tower observer reported that at 16:20 <strong>the</strong> fire<br />
was crossing <strong>the</strong> Black Range. 344 The tower was abandoned at 16:30. 345<br />
346<br />
1.133 Two water-bombing aircraft and 1 light helicopter left Mansfield, arriving at <strong>the</strong> fire around 15:45. Water<br />
bombing was ineffective, due to <strong>the</strong> wea<strong>the</strong>r conditions, and each aircraft only made one bombing run. 347<br />
Additional dozers and graders were deployed from DSE and Murrindindi Shire for control line construction.<br />
DSE ground crews were deployed to communities to <strong>the</strong> east and west of <strong>the</strong> Black Range. 348<br />
1.134 The fire moved across <strong>the</strong> Black Range very quickly and was spotting long distances. At 16:30 spot <strong>fires</strong><br />
and ember attack were reported in <strong>the</strong> Narbethong area, and aircraft were forced to suspend operations<br />
due to <strong>the</strong> increasingly hazardous flying conditions. 349 The Bushfire CRC Report indicates fire spread was<br />
likely to have been <strong>the</strong> result of ‘substantial spotting’. 350<br />
1.135 Fire crews were hampered by new <strong>fires</strong> created by spotting; <strong>the</strong>se were moving towards <strong>the</strong> Marysville area.<br />
Firefighters continued to work on asset protection under extremely difficult conditions. A back burn was<br />
attempted around 18:00 east of Marysville, although it was quickly abandoned ‘when it became hazardous<br />
and was going to be overrun by <strong>the</strong> main fire’. 351<br />
1.136 After 18:30 <strong>the</strong> south-westerly wind change arrived. Advice from DSE indicates <strong>the</strong> wind change arrived<br />
earlier and passed through <strong>the</strong> area with greater force than forecast. 352 The wind continued to change<br />
direction during this period, making it difficult to identify <strong>the</strong> direction of spotting and firefront movement. 353<br />
Lightning from intense smoke plumes and atmospheric interaction with <strong>the</strong> south-west change triggered<br />
o<strong>the</strong>r <strong>fires</strong> between <strong>the</strong> Murrindindi and Bunyip <strong>fires</strong>. 354<br />
70
The February <strong>2009</strong> Fires<br />
355<br />
1.137 The eastern flank of <strong>the</strong> fire became an extensive front. Asset protection was extremely hazardous.<br />
The spot <strong>fires</strong> that had grown in <strong>the</strong> Narbethong and Marysville areas now joined and burnt towards<br />
Marysville, from both <strong>the</strong> south-west and south-east. 356 A convoy of about 50 cars, led by Police, left<br />
Marysville at 16:45. 357 Embers started falling in <strong>the</strong> town at about 18:50. 358 CFA and DSE appliances<br />
withdrew to <strong>the</strong> Gallipoli Park Oval where some community members sheltered. 359 Embers were recorded<br />
falling in Marysville at 18:50 and many houses in <strong>the</strong> town were destroyed within an hour. 360 The wind<br />
change led to <strong>the</strong> <strong>fires</strong> reaching Buxton at 19:30 and travelling as far north as Taggerty. 361<br />
1.138 The fire eventually slowed under cooler conditions early on 8 February. It continued to burn for ano<strong>the</strong>r 26 days<br />
before it was contained. This was after an immense effort in <strong>the</strong> forest on control line construction, back burning<br />
and burning out to stop <strong>the</strong> fire moving south and threatening <strong>the</strong> water catchments of Melbourne. 362<br />
363<br />
1.139 The fire was listed as contained at 18:00 on 5 March and Under Control 2 at 11:00 on 13 March.<br />
Warnings<br />
1.140 Mr Waller commented that early in <strong>the</strong> fire, <strong>the</strong> IMT was hampered by a lack of information on <strong>the</strong> fire, as<br />
aerial observation was not possible and it was travelling through remote areas. 364 At 15:45 an awareness<br />
message was issued indicating <strong>the</strong>re was a fire in <strong>the</strong> Murrindindi area moving south-east. 365<br />
1.141 At about 16:20 an urgent threat message was prepared and sent from <strong>the</strong> Alexandria ICC for Clonbinane,<br />
Mount Disappointment, Kinglake, Heathcote Junction, Upper Plenty, Humevale, Reedy Creek and Strath<br />
Creek. 366 However, it was not posted on <strong>the</strong> website. 367 At 16:45 an urgent threat message was issued for<br />
Narbethong. 368 At 17:15 an urgent threat message was sent to agencies, media and <strong>the</strong> <strong>Victorian</strong> Bushfire<br />
Information Line (VBIL) for Marysville, Narbethong and Buxton, and at 17:34 a threat message for Marysville<br />
was relayed on 774 ABC Radio. 369<br />
1.142 At 17:20 an urgent threat message relating to Yea and Whittlesea roads was released. A fur<strong>the</strong>r urgent<br />
threat message for areas from Kinglake to Flowerdale was released, although this second message was<br />
not posted to <strong>the</strong> CFA website until 17:55. 370 An urgent threat message for Buxton was also raised prior<br />
to 18:00. 371 Fur<strong>the</strong>r urgent threat messages were issued through <strong>the</strong> night. 372<br />
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<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Redesdale<br />
Figure 1.16: Redesdale interim fire progression map<br />
Mia Mia<br />
Point of origin<br />
at 15:11 hrs<br />
Approx 15:25 hrs<br />
Approx 15:15 hrs<br />
Approx 15:27 hrs<br />
Approx 15:20 hrs<br />
Wind change<br />
at 18:35 hrs<br />
Approx 15:42 hrs<br />
Approx 16:00 hrs<br />
Glenhope<br />
Metcalfe<br />
Barfold<br />
Approx 17:00 hrs<br />
Approx 18:00 hrs<br />
Sidonia<br />
Baynton<br />
0 2 4 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0107 373<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Waterways<br />
Fire Origin<br />
Summary information<br />
Fire Danger Index The maximum FDI was 87.2 at Redesdale AWS at 16:00. 374<br />
Fatalities No fatalities 375<br />
House losses 7 houses (as reported on 8 February) 376<br />
Overall area burnt 9500 hectares 377<br />
Firefighting<br />
resources<br />
The CFA’s peak commitment to <strong>the</strong> fire was 73 appliances and 400 personnel. DSE fire personnel<br />
also attended this fire. 378<br />
72
The February <strong>2009</strong> Fires<br />
379<br />
1.143 At 15:11 a fire at Coliban Park Road, Redesdale was reported to <strong>the</strong> CFA. As <strong>the</strong> point of origin was on<br />
private land, <strong>the</strong> CFA was identified as <strong>the</strong> control agency, although responsibility passed to DSE when <strong>the</strong><br />
fire was burning on public land after 7 February. 380 The ICC was located at Huntly, Bendigo, which was <strong>the</strong><br />
ICC for <strong>the</strong> Maiden Gully fire. 381<br />
1.144 At 15:11 5 local brigades were paged. At this time no aircraft were available for this incident. Two strike<br />
teams were activated at 15:30. 382 The fire burned through undulating grassland and scrub fuels and grazing<br />
country with steep gullies and washaways. 383 It burnt in a south-easterly direction and crossed <strong>the</strong> Metcalfe–<br />
Redesdale Road at 15:27 and <strong>the</strong> Kyneton–Heathcote Road at 15:42. At 16:49 Victoria Police was advised<br />
to close Watchbox Road to traffic. Fur<strong>the</strong>r road closures followed. 384<br />
1.145 Direct attack on this fire was made wherever possible. However, due to <strong>the</strong> terrain, dozers and o<strong>the</strong>r<br />
equipment were needed to secure <strong>the</strong> fire edge. The speed of this fire was so rapid that <strong>the</strong>re was concern<br />
that <strong>the</strong> fire might reach <strong>the</strong> Cobaw Ranges or fur<strong>the</strong>r beyond to <strong>the</strong> communities of Lancefield and<br />
Carlsruhe. This did not eventuate. 385<br />
1.146 At approximately 18:30 <strong>the</strong> wind change reached <strong>the</strong> fire. Approximately two-thirds of <strong>the</strong> eastern flank of<br />
<strong>the</strong> fire was secured. The remaining eastern flank that did break away was in rough steep-gullied country.<br />
This part of <strong>the</strong> fire was progressively contained. 386<br />
387<br />
1.147 Over <strong>the</strong> next few days firefighters continued to secure <strong>the</strong> fire. This involved <strong>the</strong> strategic redeployment<br />
of resources between this fire and <strong>the</strong> nearby Maiden Gully fire. The fire was listed as contained at 09:56<br />
on 10 February. 388<br />
Warnings<br />
1.148 At 16:13 an urgent threat message was posted on <strong>the</strong> CFA website for <strong>the</strong> communities of Barfold, Langley<br />
and Metcalfe East. At 16:47 a revised alert message was posted for <strong>the</strong> communities of Sidonia, Pastoria,<br />
and o<strong>the</strong>r communities to <strong>the</strong> east of Kyneton. 389<br />
1.149 As <strong>the</strong> fire progressed, urgent threat messages were updated, advising ‘<strong>the</strong> communities of Pipers Creek,<br />
Carlsruhe, Woodend North, Newham, Cadello and Carbow [sic]’ to be alert and implement <strong>the</strong>ir fire plans.<br />
The messages advised that when <strong>the</strong> wind change arrived <strong>the</strong> fire would run in a north-easterly direction.<br />
Residents in Redesdale, Glenhope, Baynton and Baynton East, and residents in <strong>the</strong> areas between<br />
Glenhope, Baynton, Redesdale, Heathcote, Tooborac and Pyalong, were advised that <strong>the</strong>y might also<br />
be under threat when <strong>the</strong> wind change passed through.’ 390<br />
1.150 Threat messages were downgraded to alert status on 8 February, as <strong>the</strong> fire was controlled. Fur<strong>the</strong>r urgent<br />
threat messages were issued when <strong>the</strong> fire again threatened communities on 9 February. 391<br />
Narre Warren<br />
392<br />
1.151 The <strong>Commission</strong> has not yet taken evidence on <strong>the</strong> Narre Warren Fire that began at 15:32.<br />
73
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Bendigo<br />
Eaglehawk<br />
Figure 1.17: Maiden Gully interim fire progression map 393<br />
Point of origin<br />
at 16:33 hrs<br />
Approx at 17:00 hrs<br />
Approx at 17:30 hrs<br />
Long Gully<br />
Approx at 18:00 hrs<br />
Wind change<br />
at 18:44 hrs<br />
Approx at 19:00 hrs<br />
Approx at 19:30 hrs<br />
Specimen Hill<br />
Approx at 18:30 hrs<br />
0 0.5 1 Kilometres<br />
Source: Exhibit 3 – Statement of Rees (WIT.004.001.0001) at 0109 394<br />
Interim Final Fire Perimeter<br />
Roads<br />
74<br />
Railway<br />
Approx Point of Origin<br />
Parkland
The February <strong>2009</strong> Fires<br />
Summary information<br />
Fire Danger Index The maximum FDI was greater than 100 at Bendigo AWS at 15:31. 395<br />
Fatalities 1 fatality 396<br />
House losses 58 houses 397<br />
Overall area burnt 330 hectares 398<br />
Firefighting resources<br />
The CFA deployed 70 appliances and 420 personnel to <strong>the</strong> fire. DSE fire equipment<br />
and personnel were also deployed (numbers not provided). 399<br />
400<br />
1.152 This fire burnt a small area of Bendigo, including Bendigo West and parts of Long Gully.<br />
401<br />
1.153 At 16:34 a fire at Bracewell Street, Maiden Gully, Bendigo was reported. The fire was a classic ‘interface<br />
fire’ as it burned in and amongst houses and commercial premises on <strong>the</strong> outskirts of a large provincial<br />
city. 402 Resources from <strong>the</strong> Bendigo region had already been deployed to <strong>the</strong> Redesdale fire. 403 As <strong>the</strong> point<br />
of origin was on private land, <strong>the</strong> CFA was identified as <strong>the</strong> control agency and managed it from <strong>the</strong> Huntly<br />
ICC (from where <strong>the</strong> Redesdale fire was also managed). 404<br />
405<br />
1.154 Three brigades responded at 16:35. An unspecified number of additional brigades were paged at 16:38.<br />
The fire burned through disused mining country in and about <strong>the</strong> townships of Maiden Gully, Long Gully,<br />
California Gully and Eaglehawk. 406 Resources were deployed as <strong>the</strong> fire spotted into grassland from scrubby<br />
areas where access was difficult. Early in <strong>the</strong> fire’s development, as it ran to <strong>the</strong> south-east, it burnt houses<br />
and o<strong>the</strong>r structures. The wind change, which moved through <strong>the</strong> area at approximately 18:45, extended<br />
<strong>the</strong> fire to <strong>the</strong> north-east. 407<br />
1.155 The existence of relatively large tracts of vacant, unused land, coupled with scrub and recreation areas,<br />
made control extremely difficult. 408 While <strong>the</strong> fire was limited by an area of land in Pascoe Street, where<br />
fuel reduction had been undertaken, crowning and short distance spotting occurred elsewhere hampering<br />
firefighting efforts. 409 The fire burned within 1.5 kilometres of <strong>the</strong> centre of Bendigo and posed<br />
a considerable threat to <strong>the</strong> city before being contained at 21:52. 410<br />
1.156 The Bushfire CRC Report indicates that <strong>the</strong> Bendigo fire spread was faster by a factor of two to three<br />
times more than what was predicted using ei<strong>the</strong>r <strong>the</strong> Forest Fire Danger Meter or <strong>the</strong> Project Vesta model<br />
(a comprehensive research project to investigate <strong>the</strong> behaviour and spread of high intensity bush<strong>fires</strong>).<br />
The Bushfire CRC suggests that <strong>the</strong> very open nature of <strong>the</strong> forest resulted in higher wind speeds under<br />
<strong>the</strong> canopy than is assumed by ei<strong>the</strong>r model. 411<br />
Warnings<br />
1.157 An awareness message providing initial advice for <strong>the</strong> Maiden Gully area was posted to <strong>the</strong> CFA website<br />
at 17:17. 412 Numerous warnings and commentary were provided from 17:10 through to 21:10. 413<br />
At 21:37 an urgent threat message was posted noting that <strong>the</strong> fire west of Bendigo and Specimen Hill<br />
was burning in a nor<strong>the</strong>rly and north-easterly direction, and a section of <strong>the</strong> fire was moving towards<br />
Eaglehawk. Residents in <strong>the</strong> Upper California Gully Road and Hall Street area were warned that <strong>the</strong>ir<br />
area was under ember attack. This information was updated progressively through <strong>the</strong> night as <strong>the</strong> fire<br />
was brought under control. 414<br />
75
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Beechworth–Mudgegonga<br />
Figure 1.18: Beechworth–Mudgegonga fire map<br />
Beechworth<br />
Baarmutha<br />
Point of origin<br />
at 13:32 hrs<br />
Stanley<br />
Bruarong<br />
Murmungee<br />
Glen Creek<br />
Gundowring<br />
Dederang<br />
Taylor Gap<br />
Mudgegonga<br />
Gapsted<br />
Running Creek<br />
Merriang<br />
Myrtleford<br />
Ovens<br />
Buffalo Creek<br />
Happy Valley<br />
Eurobin<br />
Havilah<br />
0 2 4 Kilometres<br />
Source: Exhibit 6 – Statement of Waller, Attachment 46 (WIT.002.001.0895) at 0897 415<br />
Interim Final Fire Perimeter<br />
Built Up Areas<br />
Roads<br />
Fire Origin<br />
Parkland<br />
Summary information<br />
Fire Danger Index<br />
The maximum FDI was 42 at Hunters Hill AWS at 13:06 and an FDI of 126 was reached<br />
at Wangaratta AWS at 13:30. 416<br />
Fatalities 2 fatalities 417<br />
House losses 29 damaged or destroyed 418<br />
76<br />
Overall area burnt Approximately 31,000 hectares 419<br />
Firefighting resources<br />
On 7 February 35 NEO personnel, 2 tankers, 2 dozers and 12 slip-on units attended <strong>the</strong><br />
fire. Ano<strong>the</strong>r 50 CFA personnel and 18 tankers responded toge<strong>the</strong>r with 1 helicopter and<br />
2 fixed-wing aircraft. From 8–12 February up to 386 NEO personnel per day attended <strong>the</strong><br />
fire, with 7 dozers, 8 tankers and 39 slip-on units. Up to 644 CFA personnel and 24 tankers<br />
were deployed, 420 toge<strong>the</strong>r with appliances from Hancocks Plantations and <strong>the</strong> NSW Rural<br />
Fire Service. 421
The February <strong>2009</strong> Fires<br />
1.158 The largest population in <strong>the</strong> immediate area is Yackandandah (population 2100). The towns most affected<br />
were Gapsted (population 294), Mudgegonga (population 385) and Dederang (population 422). The outer<br />
areas of Stanley (population 689) were also affected. 422<br />
1.159 At around 18:09 on 7 February a fire was reported to <strong>the</strong> DSE Beechworth depot via a mobile phone call<br />
from <strong>the</strong> Beechworth DSE office. 423 At around <strong>the</strong> same time a DSE staff member at <strong>the</strong> depot received<br />
a phone call from a member of <strong>the</strong> public reporting <strong>the</strong> fire. The point of origin was reported to be around<br />
4 kilometres south of Beechworth. 424 As <strong>the</strong> point of origin was on public land DSE was <strong>the</strong> control agency<br />
for <strong>the</strong> fire. 425 The ICC was located at <strong>the</strong> Beechworth DSE office and at Ovens from 8 February. 426 It was<br />
a joint DSE/CFA ICC.<br />
427<br />
1.160 Personnel at <strong>the</strong> Ovens, Beechworth and Bright DSE work centres were deployed to <strong>the</strong> fire. At 18:10<br />
<strong>the</strong> DSE Incident Controller called back a strike team he had stood down at 18:00 (expecting <strong>the</strong>m to be<br />
deployed to <strong>the</strong> Kilmore East fire <strong>the</strong> next day). The team responded to <strong>the</strong> Beechworth fire, along with<br />
local CFA crews, at an estimated arrival time of 18:30 (earlier in <strong>the</strong> day a Beechworth DSE task force<br />
had already been deployed to assist <strong>the</strong> CFA at <strong>the</strong> Kilmore East fire). 428<br />
429<br />
1.161 Access to <strong>the</strong> fire was hindered near <strong>the</strong> point of origin due to sagging power lines. Reports from <strong>the</strong><br />
fireground indicated that <strong>the</strong> fire was moving rapidly under <strong>the</strong> influence of a strong north, north-westerly<br />
wind, gusting up to 60 kilometres per hour, with subsequent spotting. 430 Initial fire behaviour was not<br />
extreme given that <strong>the</strong> fire was burning over areas previously burnt in 2002–03. However, <strong>the</strong> south-easterly<br />
spread of <strong>the</strong> fire into steep, inaccessible areas with heavy fuel loads led to some extreme fire behaviour. 431<br />
Spotting occurred a ridge ahead of <strong>the</strong> firefront. 432<br />
1.162 The first attack dozer was at <strong>the</strong> fire by 19:00. At about this time 2 fixed-wing bombers and a light<br />
helicopter based at Mansfield were deployed. The bombers made several drops until nightfall when<br />
<strong>the</strong>y were stood down. 433<br />
1.163 The fire was burning in a south-easterly direction, through a steep, inaccessible sluiced area containing<br />
heavy, unburnt forest fuels. This limited access for CFA crews. Crews <strong>the</strong>refore worked <strong>the</strong> nor<strong>the</strong>rn flank.<br />
Live low-hanging power lines prevented direct attack, and so indirect attack was undertaken. 434 Heavy<br />
smoke and limited fire line communications during <strong>the</strong> night made it difficult to estimate where <strong>the</strong> fire was.<br />
Overnight Victoria Police organised road blocks across <strong>the</strong> area. 435<br />
1.164 Throughout <strong>the</strong> night <strong>the</strong> power outage created significant issues for <strong>the</strong> operation of <strong>the</strong> ICC.<br />
Communications, situation reporting and planning activities were constrained, and communication<br />
and coordination were conducted on mobile phones and from vehicles. 436<br />
1.165 During <strong>the</strong> night <strong>the</strong> Incident Controller decided that due to <strong>the</strong> cramped conditions in <strong>the</strong> Beechworth ICC,<br />
<strong>the</strong> ICC would be relocated to Ovens from 07:00 on 8 February. That location was better equipped<br />
as a level 3 facility. 437<br />
1.166 At 06:00 on 8 February <strong>the</strong> size of <strong>the</strong> fire was estimated to be 20,000 hectares. Access to parts of <strong>the</strong> fire<br />
was restricted as a major transmission line through <strong>the</strong> fireground needed to be rebooted. In addition, <strong>the</strong>re<br />
was a large number of lightning strikes across <strong>the</strong> region, and a fire near Bogong Village that also required<br />
firefighting resources. 438<br />
1.167 The fire was contained after 9 days (16 February), having burnt approximately 31,000 hectares, including<br />
20,000 hectares of forest and park. Areas where fuel had been reduced through burning had a significant<br />
effect on <strong>the</strong> spread and eventual control of this fire. 439 It was reported contained at 10:30 on 16 March<br />
and Under Control 2 at 11:00 on 25 March. 440<br />
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<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Warnings<br />
441<br />
1.168 Due to <strong>the</strong> power failures distribution of warnings was in <strong>the</strong> first instance by mobile phone. At 19:10<br />
<strong>the</strong> first urgent threat message for Stanley, Barwidgee Creek and Mudgegonga was issued. 442 Subsequent<br />
urgent threat messages were sent out through <strong>the</strong> evening and <strong>the</strong> following day. On 7 February <strong>the</strong>se<br />
were for Stanley, Barwidgee Creek, Mudgegonga, Yackandandah and Bruarong. On 8 February Rosewhite,<br />
Murmungee, Ovens and Myrtleford were included in <strong>the</strong> threat messages. 443<br />
1.169 Overnight <strong>the</strong> location of <strong>the</strong> fire could not be confirmed. A number of precautionary warnings were issued<br />
and <strong>the</strong>se were also issued to towns later found not to be threatened. 444<br />
O<strong>the</strong>r Fires<br />
1.170 Numerous o<strong>the</strong>r <strong>fires</strong> occurred on <strong>the</strong> day but are not being examined by <strong>the</strong> <strong>Commission</strong> because,<br />
amongst o<strong>the</strong>r factors, many were successfully contained. One such fire was <strong>the</strong> Upper Ferntree Gully fire<br />
at Quarry Road, which was reported to ESTA at 15:42. This fire burned 9500 hectares. Twenty-one CFA<br />
appliances and 168 personnel attended <strong>the</strong> fire. 445 A heavy helicopter was also redeployed from Bunyip to<br />
<strong>the</strong> fire. 446 The fire was reported as contained at 19:10 and was controlled at 21:27. 447 This fire, which was<br />
relatively small in size, resulted in no fatalities and only one house destroyed. 448 However, it was assessed<br />
by <strong>the</strong> CFA as having <strong>the</strong> ‘most significant potential’ for losses on <strong>the</strong> day, because of <strong>the</strong> conditions and<br />
its location at <strong>the</strong> foothills of Mount Dandenong, in a heavily populated area. 449<br />
Fire Activity after 7 February<br />
450<br />
1.171 After 7 February <strong>the</strong> Murrindindi and Bunyip <strong>fires</strong> continued to burn. On 8 February a fire ignited at<br />
Wilsons Promontory. 451 Many IMTs continued operating on a 24-hour basis. 452 The East Tyers–Thomson<br />
fire was contained on 16 February but not declared Under Control 2 until 30 March. 453 The Beechworth fire<br />
continued to burn until 25 March. 454<br />
455<br />
1.172 Wea<strong>the</strong>r conditions deteriorated on 23 February posing initial risks to <strong>the</strong> sou<strong>the</strong>rn edge of going <strong>fires</strong>.<br />
While <strong>the</strong> CFA recorded 135 grass <strong>fires</strong> on that day, only 3 developed into significant <strong>fires</strong> — Upwey<br />
(igniting at 14:28), Muskvale near Daylesford (igniting at 14:55), and Won Wron (ignition time not advised). 456<br />
457<br />
1.173 Wea<strong>the</strong>r conditions deteriorated again through <strong>the</strong> weekend of 28 February–1 March. On 1 March a joint<br />
CFA/DSE/<strong>Victorian</strong> State Emergency Service media release was issued warning of an extreme wea<strong>the</strong>r<br />
threat. 458 The warning predicted an onset of increasing temperatures and strong nor<strong>the</strong>rly winds right across<br />
<strong>the</strong> State. 459 Total fire bans were declared on 2 and 3 March. 460<br />
1.174 As a result of <strong>the</strong>se concerns comprehensive preparations were undertaken over <strong>the</strong> weekend and into<br />
Monday 2 March. On 2 March, wea<strong>the</strong>r for 3 March was predicted to include very strong nor<strong>the</strong>rly winds. 461<br />
In addition, <strong>the</strong> police sent out a text message to nearly all <strong>Victorian</strong> mobile phone customers, warning <strong>the</strong>m<br />
of pending and extreme fire and wind changes. 462<br />
1.175 On 3 March this prediction was updated. Wind speeds were revised down and humidity was higher than<br />
estimated. Ultimately, <strong>the</strong> wea<strong>the</strong>r did not deteriorate as badly as predicted. 463 Humidity remained relatively<br />
high and this enabled new <strong>fires</strong> to be more easily controlled. That said, <strong>the</strong> CFA responded to 195 grass<br />
<strong>fires</strong> over <strong>the</strong> period 2–3 March. 464<br />
1.176 Following <strong>the</strong>se wea<strong>the</strong>r patterns, some rainfall fell across <strong>the</strong> state. Although not significant enough to end<br />
<strong>the</strong> fire season, it assisted ground crews in dampening any <strong>fires</strong> that remained. 465<br />
1.177 Twenty-six days after ignition, <strong>the</strong> Kilmore East–Murrindindi fire was reported contained on 5 March, under<br />
control on 10 March and safe on 27 April. Due to <strong>the</strong> dry conditions, much of <strong>the</strong> firefighting was directed<br />
at and managed by back burning. 466 The Bunyip fire was reported contained on 4 March and under control<br />
on 15 March. 467<br />
78
The February <strong>2009</strong> Fires<br />
Previous Major Fires<br />
1.178 Maps from <strong>the</strong> Report of <strong>the</strong> Inquiry into <strong>the</strong> 2002–2003 <strong>Victorian</strong> Bush<strong>fires</strong>, comparing areas burnt across<br />
Victoria in 1939, 1983 and 2003, are presented in figures 1.19 –1.22. 468 The <strong>Commission</strong> has added a map<br />
for <strong>the</strong> 7 February <strong>fires</strong>. While <strong>the</strong> total area burnt in <strong>the</strong> <strong>2009</strong> <strong>fires</strong> is less than <strong>the</strong>se earlier <strong>fires</strong>, <strong>the</strong> impact<br />
on lives and homes lost has been much greater.<br />
Figure 1.19: 1939 <strong>Victorian</strong> bush<strong>fires</strong><br />
Ouven<br />
Corryong<br />
Bright<br />
Casterton<br />
Hamilton<br />
Stawell<br />
Ararat<br />
Ballarat<br />
Mansfield<br />
Yea<br />
Marysville<br />
Melbourne<br />
Dargo<br />
Omeo<br />
Bairnsdale<br />
Orbost<br />
Cann River<br />
Portland<br />
Warrnambool<br />
Geelong<br />
Colac<br />
Lorne<br />
Cowes<br />
Warragul<br />
Traralgon<br />
Yarram<br />
Sale<br />
Apollo Bay<br />
Source: Exhibit 11 – Statement of Esplin, Attachment 11 (WIT.005.001.0951) at 0999 469<br />
79
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Figure 1.20: 1983 <strong>Victorian</strong> bush<strong>fires</strong><br />
Nhill<br />
Echuca<br />
Wangaratta<br />
Corryong<br />
Horsham<br />
Bendigo<br />
Bright<br />
Stawell<br />
Ararat<br />
Seymour<br />
Yea<br />
Mansfield<br />
Omeo<br />
Casterton<br />
Ballarat<br />
Marysville<br />
Melbourne<br />
Dandenong<br />
Frankston Warragul<br />
Traralgon<br />
Sale<br />
Bairnsdale<br />
Orbost<br />
Cann River<br />
Mallacoota<br />
Portland<br />
Warrnambool<br />
Anglesea<br />
Lorne<br />
Cowes<br />
Yarram<br />
Apollo Bay<br />
Source: Exhibit 11 – Statement of Esplin, Attachment 11 (WIT.005.001.0951) [13] 470<br />
80
The February <strong>2009</strong> Fires<br />
Figure 1.21: 2003 <strong>Victorian</strong> bush<strong>fires</strong><br />
Murrayville<br />
Wangaratta<br />
Wodonga<br />
Corryong<br />
Bright<br />
Omeo<br />
Melbourne<br />
Dargo<br />
Cann River<br />
Colac<br />
Geelong<br />
Traralgon<br />
Sale<br />
Source: Exhibit 11 – Statement of Esplin, Attachment 11 (WIT.005.001.0951) [14] 471<br />
81
<strong>2009</strong> <strong>Victorian</strong> Bush<strong>fires</strong> <strong>Royal</strong> <strong>Commission</strong>—Interim Report<br />
1 THE FEBRUARY <strong>2009</strong> FIRES<br />
Figure 1.22: <strong>2009</strong> <strong>Victorian</strong> bush<strong>fires</strong><br />
Ouyen<br />
Nhill<br />
Beechworth<br />
Horsham<br />
Bendigo<br />
Edenhope<br />
Castlemaine<br />
Yea<br />
Casterton<br />
Hamilton<br />
Ballarat<br />
Melbourne<br />
Marysville<br />
Dargo<br />
Dandenong<br />
Colac<br />
Warragul<br />
Traralgon<br />
Yarram<br />
Source: Exhibit 11 – Statement of Esplin, Attachment 1 (WIT.005.001.0049) at 0111 472<br />
82