Download the Dandenong Ranges Landscape project guide

TheDandenongRangesLandscapeBushfireProjectIn this guide:Introduction /1The focus /6Strategic themes and deliverables /11Governance /15

LeadershipInteroperabilityAccountabilityPhotographer: Angus Whitby

INTRODUCTIONThis guideThis guide aims to inform communities, the emergency serviceagencies and other fire management participants ipants about theDandenongRanges Landscape Bushfire Project and its intent in building safer andmore resilient communities. This guide provides an overview of theproject aims and the approach of the Fire Services Commissioner withthe dedicated project participants.“The Commission does not consider that the flawsidentified in connection with Black Saturday can beovercome simply by doing more of the same, evenif it is done better.”- 2009 Victorian Bushfires Royal Commission Final Report1

BUSHFIRE PLANNING PRINCIPLESPrimacy of human lifeHuman life takes priority above all other obligations in bushfiremanagement.LeadershipLed by the Fire Services Commissioner, who is accountable tothe people of Victoria, for making appropriate arrangements toreduce the likelihood and impact of bushfire.A seamless approachAgencies will work together sharing resources and aligned to acommon goal. All fire management plans will seamlessly integrate.Shared responsibilityAll government agencies, organisations, businesses, industry andindividuals will play their part.Community resilienceThe strengthening of a community dedicated to bushfireprevention and preparedness.Risk drivenThe prioritisation of bushfire management policy and programsbased on the measurable reduction of risk from the impact ofbushfire.Learning and knowledgeThe incorporation of local knowledge, experience and operationaland scientific evidence. This project will stimulate research, provideknowledge and build capability.2

INTRODUCTIONLandscape Planning in VictoriaIn Victoria, strategic fire and emergency management planning is undertakenat State, Regional and Municipal levels. This allows for the individual risk,characteristics and diversity of each area to be represented and consideredmore effectively.However, some significant areas of bushfire risk, such as the DandenongRanges Landscape, are situated across multiple regions andmunicipalities and require an integrated, tenure-blind approach todevelop and integrate a strategic approach to fire safety planning. Thistenure-blind planning is a relatively new approach to historicalchallenges in a complex and dynamic environment.It also provides an opportunity for improvement and streamlining acrossall areas of fire management planning,as the outcomes becomeembedded into the existing fire managementplanningframework and broader emerergegency managementsystems.BUSHFIRE CATCHMENTThis term is helpful for analysingthe likelihood, consequence andrisk of fire as it includes thelikely sources, impact areas andspread of the bushfire. Planningis then determined by the flow ofthe bushfire, rather than anadministrative boundary.Examples of other bushfirecatchments include theGrampians Ranges, Colac-OtwayRanges, Macedon Ranges andthe Otway Ranges.Photographer: Angus Whitby, Harrietville fires, 20133

The Landscape Planning project is intended to be asupporting and transitional process . The outputs willenhance and integrate with the current planningframework by exploring innovative ways of doing things tocreate better outcomes for the community. The approachwill be based on hazard and risk rather than onadministrative boundaries, and input from CommunityAdvisory Groups will be included throughout the projectalong with the best available data and technology.The Future Fire Management and Barwon Otway PlanningPilot was led by DSE and took a similar approach intenure-blind planning. The strategies and lessons learnedfromthepilothave contributed to informing the approachand model of this project.BACKGROUNDFuture Fire Management and Barwon OtwayPlanning PilotThe Future Fire Management Project and the Barwon OtwayBushfire Management Planning Pilot were the first landscapebushfire planning projects in Victoria. These are complementaryprojects that use cutting-edge bushfire modelling technology calledPhoenix-Rapidfire to simulate bushfires and model their potentialimpacts on human assets, values and ecosystems.This joint initiative between the Department of Sustainability andEnvironment and Parks Victoria is recognised as one of Australia’smost progressive and innovative projects in the fields of fire andemergency. By using new technology, science and research it alloweda more comprehensive and accurate picture of bushfire risk to livesand property. This approach forms part of the risk assessmentphase that is an essential part of all fire management plans.The project has been supported by strong partnership with theBushfire Cooperative Research Centre and the University ofMelbourne. It was undertaken initially in two pilot study areas, theOtways and Central Highlands.“Bushfire knows no boundaries, and neither will the next generation of bushfire planning.”- Department of Sustainability and Environment Future Fire Project Team4

INTRODUCTIONPlanning in the DandenongRanges LandscapeThe Dandenong Ranges LandscapeBushfire Project is a Victorian-firstbushfire planning initiative, establishedby the State Government as part of theFire Services Commission ReformAction Plan. Led by the Fire ServicesCommissioner, it is underpinned by theBushfire Safety Policy Frameworkwhich will ensure alignment andintegration between existing policiesand plans.The project will address high-risk planning and safetyissues in the area and improve community and agencypreparedness, enabling informed, evidence-based decisionmakingbefore, during and after bushfires. It will developlinks and continuity between the fire management plansat regional and municipal levels within the DandenongRanges Landscape.This undertaking reflects the desire to promote sharedresponsibility for fire management that has grown from the2009 Victorian Bushfires Royal Commission and evolved tobecome a driving force in fire and emergency managementAustralia wide. Communities are and will continue to bedirectly part of the process of providing advice, guidanceand input into a range of policies and proceduresfundamental to how they live in a high bushfire risk area.Communities and fire service agencies are being challengedto apply new ways of thinking, preparing and planning.This project will place far greater emphasis on hazard, riskand consequence management and on meeting the needsof people who live, work in, or visit high bushfire risk areas.It is an important part of Victoria’s long term journey ofbuilding knowledge, capability, partnerships and resilienceto bushfire.“We cannot solve our problems with the samethinking we used when we created them.”- Albert Einstein5

Bushfire Safety Policy FrameworkCONTEXTThe Bushfire Safety Policy Framework 2011provides direction and guidance to government andagencies on the improvement of communitybushfire safety for all Victorians.The Dandenong Ranges Landscape Bushfire PilotProject contains these overarching priorities andoperates within the development aims of theFramework in an end-to-end planning processacross all sectors.Framework Priorities• Shared ResponsibilityResponsibility for bushfire safety will beshared by all organizations and people• Engagement and Education – Understanding RiskIncreasing community understanding andawareness to inform decision-making• Bushfire Preparation and PlanningFor residents and visitors of bushfire risk areas• Fire Danger Information and WarningsProviding the right information at the right time sothat individuals can make the best decisions• Local Community Fire PlanningEnhancing community planning and engagementto assist individuals, business and families toproduce fire plans• Bushfire Safety OptionsProviding a range of options that areappropriate for where people live or workStrategicStrategicdirectionGovt& agencyintiativesCommunityoutcomesStatewideinitiatives andcommunicationsEngagementand educationDevelopsInformed andReadinesspreparedtohouseholdsrespondandifcommunitiesLegislation,Regulation,Policy BushfireSafety PolicyFrameworkProvidesdirection andguidance toGuidesandsupportsLocal fireplanningIdentifieslocaloptions forFire dangerinformationand warningsEnhancesReadiness toInformed respond if andprepared threatened housebyfireFiremanagementplanningSafety optionsand shelterEnablesSaferesponse Saferesponse duringemergencies duringSurvivalTo view the Bushfire Safety Policy Framework go to the Fire Services Commissioner’s website, www.firecommissioner.vic.gov.au6

THE FOCUSAims and OutcomesOutcomesThe Dandenong Ranges Bushfire LandscapeProject aims to:• Reduce the likelihood and consequencesof major bushfires on communities in theDandenong Ranges• Develop cross-boundary strategies to informother levels of planning and activity• Develop methodologies that inform bushfiresafety planning in other high risk areas• Enhance the safety of people through anapproach of shared responsibility thatengages agencies and community members• Build more sustainable communitiesWhile one of the outputs of this projectwill be enhancement of operationalresponse plans, it is not intended thatany additional fire management plansor strategies will be created. Rather, theoutcomes and products of this projectare to be incorporated within theEastern Metropolitan and SouthernMetropolitan Regional Strategic FireManagement Plans, and the MunicipalFire Management Plans of Yarra Ranges,Cardinia, Knox and Casey as part of theIntegrated Fire Management Planning(IFMP) Framework. The project aims toensure continuity between the plans atregional and municipal level in theirapproach to fire management in theDandenong Ranges Landscape.Photographer: Owen GoodingPhotographer (background image): Angus Whitby7

WarburtonSevilleWOORI YALLOCK ICCYarra RiverWesburnThe Dandenong RangesBushfire LandscapeProject AreaWoori YallockYarra JunctionIncident Control CentreLocal Government AreasYARRA RANGESHoddles CreekDandenong Project Pilot ViewFreewayHighwayMain RoadWatercoursePermanent WaterbodyOther Public LandParks and Other Conservation AreasPrivate Land Tree CoverEastern Metropolitan RegionSouthern Metropolitan RegionEmeraldCockatooGembrookBAW BAWNCARDINIAWESPAKENHAM ICCPakenhamNar Nar GoonTynongMap created on 26/11/12GarfieldBunyipAuthor: Frazer Wilson, DEPIBAW BAWDisclaimer: This may be ofassistance to you but the State ofVictoria and its employees do notguarantee that the publication iswithout flaw of any kind or is whollyappropriate for your particularpurposes and therefore disclaimsall liability for any error, loss orother consequence which may arisefrom you relying on any informationin this publication.10

STRATEGIC THEMES AND DELIVERABLESStrategic Themesand DeliverablesThese Strategic Themes havebeen identified to enhanceunderstanding and to help toprioritise the deliverables andactions of the project. Each themecaptures a key area of strategicinterest and priority in this projectand beyond. The themes anddeliverables contain sufficientscope and flexibility to allow fordynamic local needs, changesin the emergency managementsector, emerging capability andother unforseen variability. Thisproject supports a focus onresults and lasting change throughevolving processes and enhancinginformation to support decisionmaking by all involved in bushfireplanning and management.Primacy of life is a foundationalprinciple of each theme anddeliverable.The first steps involve understanding the riskofbushfire in the catchmentand how it can potentiallyimpactthecommuninityty. As each theme matures,theactions it contains willhave a flow-on effect to theothers as partof thiscontinuously improving planningcycle. Thethemes and deliverables areadaptable andas new solutions become available and new issuesemerge it is expected that they willalso change andevolve appropriately. The themes will also shiftinpriority over the lifeof the project as differentactions and deliverables come to thefore.Workon the deliverables containedin each strategictheme has commenced.These themes complplememenent the project action plan.Updates on theplan can befound on the Fire ServicesCommissioner websisite.STRATEGIC THEMES1. Understanding theHazard and Risk2. Managing the Hazard and Risk3. Saving Lives During Bushfire4. One plan for All5. The Built Environment6. Innovation7. Community Resilience11

“We mustput the priority of saving human life in the forefront of our reasoning at all times.I, along with others involved in this project, have lived through major bushfire events in Victoria.The inevitability of fire and its consequences means that we must all bepositive, innovative andproactive, leaning forward in our chairs to cooperate and overcome the internal and externalbarriers andmake the most of this opportunity to improve safety outcomes for our communities.s.”- Steven Pascoe, Project ManagerSTRATEGICTHEMES1. Understanding1.the UnderstandingHazard and Riskthe hazard andrisk2. Managing theHazard and Risk3. Saving LivesDuring BushfireFOCUSThe level and types ofhazards and risk for theDandenong Ranges will bemapped and analysed usinglocal knowledge and the mosteffective and innovativetools, technology andprocesses available. Updatesto these tools, technologiesand processes willcontinuously inform andimprove the understanding ofhazard and risk.This will enable the informedimplementation of all otherproject focuses and activities.The hazard and risk ofbushfire in the DandenongRanges landscape will bemanaged across public andprivate land.The strategic planningsystem and specific landuse planning policies areparticularly important increating safer and moresustainable communities.This phase of the projectwill include a review ofrelevant planning schemes.A range of tangible andeffective fire safety optionswill be made available to thecommunity.These will include theimplementation of warningsystems and shelter optionsin the most effective andappropriate way possiblefor the area, including butnot limited to a trafficmanagement and evacuationplan. By reviewing traditionaland new options in the longand short term, this researchwill be used more broadly toinform the implementation ofshelter options and warningsystems across Victoria.DELIVERABLES• ANALYSIS ANDMAPPING OF THEHAZARD AND RISKIN THE DANDENONGRANGES LANDSCAPE• PLAN FUEL ANDLAND MANAGEMENTINITIATIVES ACROSSPUBLIC ANDPRIVATE LAND• DEVELOP LOCAL LANDUSE PLANNINGARRANGEMENTS• WARNING SYSTEMS• SHELTER OPTIONS• TRAFFIC MANAGEMENTAND EVACUATION• Analysis and mappingof the hazard and riskin the dandenong rangeslandscapes12

STRATEGIC THEMES AND DELIVERABLESSTRATEGICTHEMES4. One planfor All5. The BuiltEnvironmentTo save lives and protectcommunity assets6. InnovationFOCUSThere will be a unified fireplanning process for allagencies, organisations andcommunity members in theDandenong RangesLandscape. There will be apublicly available plandeveloped in an inclusiveprocess. Plans will beregularly reviewed andaudited.The operational responseplan has been developed as apriority and will evolve asmore information from otherdeliverables and activities ofthe project becomeavailable. The response planwill seamlessly integratewith other bushfiremanagement plans.Priority assets will beassessed and reviewed forsafety to people, for theirvalue to the community andfor their readiness towithstand fire. Essentialcommunity infrastructurewill be identified.Recommendations willbe made identifyingenhancements that arerequired to protectidentified essentialinfrastructure.Recommendationswill also be maderecommendinginfrastructureenhancements thatare necessary to support lifeand community.New and existingapproaches to the historicand modern challenges ofbushfire will be reviewed,promoting innovation andimprovement.Advancements in technologyto assist early detection ofand rapid response tobushfire events will also beexamined and evaluated.DELIVERABLES• DEVELOPMENT OF ANOPERATIONS PLAN FORALL AGENCIES ANDCOMMUNITY• DEVELOP STRATEGIESTO PROTECT ESSENTIALCOMMUNITYINFRASTRUCTURE• RECOMMENDINFRASTRUCTUREENHANCEMENTS TOSUPPORT SAVING LIVES• REVIEW ANDRECOMMENDTECHNOLOGY TOASSIST EARLYDETECTION ANDRESPONSE13

7. Community Resilience RESILIENT COMMUNITIESBuilding community resilience and capability is anongoing and interconnected theme of the DandenongRanges Landscape Bushfire Project. This will be buildingon the partnerships between government, organisationsand community to enable strengthened ability torecover and learn from major fire events.By raising knowledge and awareness as well as creatinggreater understanding and involvement, people will beable to make more informed and practiced choices toprotect their life and property in the most effective wayfor their circumstance. The Dandenong RangesLandscape has a unique and active community. Thisproject will support communities to continue to buildthese strong connections for fire and emergencymanagement planning.‘Communities that develop a high level ofresilience are better able to withstand a crisisevent and have an enhanced ability to recoverfrom residual impacts. Communities thatpossess resilience characteristics can also arriveon the other side of a crisis in a stronger positionthan pre-event.For example, a community that has:• well-rehearsed emergency plans• superior fire mitigation processes in the coolermonths• appropriate building controls, suitable to localhazards and risks• widely adopted personal and business financialmitigation measures (e.g. insurance suitable tothe risks)likely to suffer less during an extreme fire eventand is likely to be able to recover more quickly –financially, physically and as a community.’- Insurance Council of Australia 2008, ImprovingCommunity Resilience to Extreme Weather Events• DEVELOP AND IMPLEMENT COMMUNITYRELIEF AND RECOVERY SYSTEMS ANDINFRASTRUCTURE• DEVELOP AND IMPLEMENT STRATEGIESFOR INFLUENCING POSITIVE CHANGE INTHE COMMUNITY14

GOVERNANCEGovernanceThe streamlined governance arrangements for this project ensurecoordinated delivery and community involvement as well as providingclear lines for decision making.StructureSponsorFire Services CommissionerAuthorisationExecutive CommitteeChemical fire suppressionLeadership and deliveryProject Management BoardAdvice and communicationCommunityadvisory groupsScientificadvisory resourcesSee next page for membership.Including and informingUpdates on the progress of the Project’s numerous endeavours will be communicated to the Community Advisory Groupsthrough planned meetings. The Executive Committee and the Project Management Board will meet regularly, ensuring thatall relevant agencies, local Government personnel and other experts will be kept up to date on the Project and involved inits development.Chemical fire suppressionStateFireManagementPlanningCommitteesEastern Metropolitan RegionMunicipalitiesSouthern Metropolitan RegionMunicipalitiesYarra RangesKnoxCardininaCaseyGreater exposure to risk15

“Improving the emergency management systems in Victoria is everyone’s business.Government, community, business and emergency service organisations.”- The Hon. Kim Wells MP, Minister for Emergency Services, Minister for Bushfire Response.AccountabilityThis Project and its participants must consider a range of regulatory and legislative requirements as well as businessplanning priorities. The governance structure of this project will facilitate the inclusion of this project into these oftencompeting priorities.An action plan has been developed in a collaborative and consultative committee process. The action plan clearlydesignates the lead agency/ organisation accountable for leadership and completion of each deliverable.ExecutiveCommitteeAccountabilityProvide a high level of executive oversight andthe authorising environment to set the focusand strategic directions of the project.MembershipFSC, Secretary DEPI, DPCD, Chief CommissionerVictoria Police, CEOs of Vic Roads, MAV, CFA,Parks Victoria, Yarra Ranges, Cardinia, Casey andKnox Councils, CAG Representative.ProjectManagementBoardLead the landscape planning process, providingresources and support for the implementation ofthe project and to achieve the desired outcomes.The project focus areas are managed by the Board.FSC, Project Manager, Chairs of Southern and EasternMetropolitan Strategic Fire Management PlanningCommittees and representatives from DEPI, CFA, MFB,Parks Victoria, Victoria Police, and Yarra Ranges, Cardinia,Knox and Casey Municipal Councils, CAG Representative.CommunityAdvisoryGroupsProvide advice, support and community input tothe Executive committee and Project ManagementBoard. Collaborate and communicate at every stageand area to ensure sustainable and meaningfuloutcomes.Community members representing local fire brigades,Victoria Police, church groups, schools, sportingclubs, cultural heritage groups, trader associations,environmental groups, senior citizens and other membersof the community.ScientificAdvisoryResourcesProvide peer review and advice on technicalinformation. Support sound risk and hazardunderstanding to ensure evidence-baseddecision-making.As required.16

GOVERNANCECommunicationsUpdates on the progress of the Project’s numerousendeavours will be communicated to the CommunityAdvisory Groups through planned meetings. The ExecutiveCommittee and the Project Management Board will meetregularly, ensuring that all relevant agencies, localgovernment personnel and other experts will be keptup to date on the project and involved in its development.The broader community will be informed with regularupdates on the Fire Services Commissioner’s website:www.firecommissioner.vic.gov.au.A reporting framework has been designed that requiresquarterly reporting on the action plan and an annual reviewof the project’s progress.ResourcingThe Dandenong Ranges Landscape Bushfire Project is ajoint funded government initiative. It is resourced by allcontributing and participating agencies and Councils andsupported by skilled practitioners. The budget is theresult of these funding commitments, as well as of thein-kind resources of all agencies and organisationsinvolved. Alternative funding and resource modalities willalso be reviewed over the course of this project to ensurecontinued commitment to sustained bushfiremanagement planning. Existing funding will be utilised ina more effective way to produce the best outcomes andpublic value.17

INFOContactCraig Lapsley,Fire Services CommissionerFire Services CommissionerPhone: 03 8684 1388To participate in the DandenongRanges Landscape BushfireProject, follow the links atwww.firecommissioner.vic.gov.au orcontact (03) 8684 1388 to makean enquiry.firecommissioner.vic.gov.auAcknowledgementsPhotographs courtesy of FSC,CFA, MFB, Parks Victoria,Tourism Victoria, DEPI, SES,VicRoadsFeature images by OwenGooding, Angus Whitby andKristie WitloxThis publication has beenproduced by the Fire ServicesCommissionerL 26, 121 Exhibition StreetMelbourne VIC 3001Date of Publication:June 2013DisclaimerThe State of Victoria and its employeesdo not guarantee that this publication iswithout flaw of any kind, or is whollyappropriate for your particular purposes.Therefore the State of Victoria disclaimsall liability for any error, loss or otherconsequence which may arise from anyperson or group relying on anyinformation in this publication.The Fire Services Commissioner and the Dandenong RangesBushfire Landscape Pilot Project acknowledge the AboriginalTraditional Owners of the Dandenong Ranges, the Wurundjeriand the Bunurong people.18

This publication has been producedby the Fire Services Commissioner,L26, 121 Exhibition StreetMelbourne VIC 3001.Enquiries about this publication can be directed to:Fire Services CommissionerL26, 121 Exhibition StreetMelbourne VIC 3001,or email to admin@firecommissioner.vic.gov.aufirecommissioner.vic.gov.au© Fire Services Commissioner, Victoria.This publication is copyright. No part may be reproduced by any processexcept in accordance with the provisions of the Copyright Act 1968.Published by the Fire Services Commissioner121 Exhibition StMELBOURNE 3000JUNE 2013