2009 victorian bushfires royal commissionroyalcommission.vic.gov.au/.../resp.3000.006.0185.pdf ·...
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2009 VICTORIAN BUSHFIRES ROYAL COMMISSION Letters Patent issued 16 February 2009
SUBMISSIONS ON RESOURCE TRACKING
Date of Document: 14 May 2010 Solicitor’s Code: 7977 Filed on behalf of: The State of Victoria Telephone: +61 3 8684 0444 Prepared by: Facsimile: +61 3 8684 0449 Victorian Government Solicitor's Office DX 300077 Melbourne Level 25 Ref: PAC 944884 121 Exhibition Street Attention: John Cain Melbourne VIC 3000
1. These submissions are made on behalf of the State of Victoria (the State) in
response to the submissions by Counsel Assisting dated 3 May 2010 to the
2009 Victorian Bushfires Royal Commission (the Commission).1
Overview
2. The State:
2.1 Supports proposed recommendations 1 and 2.
2.2 Supports in principle proposed recommendation 3 and proposes an
alternative recommendation.
Introduction
3. The State acknowledges the importance of tracking resources during
incidents, both to deploy resources efficiently, and to protect the safety of
the crews.2
4. Both the Country Fire Authority (CFA) and the Department of Sustainability
and Environment (DSE) employ a broad range of solutions to track
resources, some of which are comparatively ‘low tech’ such as the T Card
system,3 and others which utilise current and emerging technologies such
1 The State notes that the submissions of Counsel Assisting are mainly focussed on tracking CFA resources. Accordingly, these Submissions focus primarily on the tracking systems CFA have in place. 2 Slijepcevic T18187:11-T18187:19 3 Corbett Ex 874, WIT.3004.043.0298, [37]-[40];Slijepcevic Ex 872, WIT.3024.006.0113, [25]
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as DSE’s Incident Resource Information System (IRIS),4 Resource and
Aircraft Tracking Systems (RATS), and SpiderTracks, ESTA’s Computer
Aided Dispatch (CAD) (used by CFA) and CFA's Incident Management
System (IMS).
5. Technology is moving forward in a way that will, in the medium term, allow
the State to appropriately and effectively track resources and to use tracking
information to inform decision making and further improve the safety of
firefighters.
6. Implementation of the Roadmap and the Emergency Services
Communications Strategic Framework (Framework)5 will enable the State
to make informed decisions about the business needs of each agency and
technical options in relation to resource tracking, across the broad range of
emergency services activities, including bushfires.6
7. However, technological solutions to resource tracking can not be considered
in isolation. The State emphasises that:
7.1 Resource tracking systems, and particularly technological solutions,
should never be considered as a substitute for radio communication
and the chain of command which provides sector and divisional
commanders with information as to the location of resources during
an incident.7
7.2 The ad hoc application of technologies and systems without
significant consideration of their part or role in an overall
emergency information management system, and without
integration with other technologies, will most likely result in
additional complexity and limited benefits. For example, Global
Positioning Systems (GPS) could be utilised in conjunction with a
map book but it would be of little use for tracking purposes without
further integration.8 Similarly, Automatic Vehicle Location (AVL)
solutions are a useful tool, however, there are limits to their
usefulness if they are not based on appropriate data and integrated
4 Griffiths Ex 24, WIT.018.001.0001, [18]-[27] 5 Emergency Services Communications Strategic Framework Ex 867, DOJ.001.005.0159 6 Lloyd Ex 869, WIT.3028.001.0070, [23] 7 Slijepcevic T18187:31-T18188:30
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with other operational information to assist with informed decision making.9
7.3 Short term technological solutions come with their own dangers and
costs including the requirement to retrain individuals, and replace
technology that will be superseded in the medium to long term.10
7.4 Care needs to be taken that any resource management and
tracking systems that are procured by the State in the future can be
incorporated and integrated into existing and future systems, such
as CAD.11 Further, any systems purchased should relate to
identified day-to-day business needs including the ability to respond
to a range of hazards, and not only bushfires.12
7.5 An integrated approach to utilising technology, including GPS,
across agencies reduces the risk that systems and processes can
become too complicated and can distract from the core task. Any
application of technology should be uniform, simple to use and
consistent across the emergency services organisations (ESOs)
where appropriate. Ideally, any application of an IT solution to
assist in resource tracking must require little or no intervention by
personnel. The simpler the system, the more likely that it will be
utilised and result in tangible benefits.13
Response to submissions of Counsel Assisting
8. The State notes the submissions of Counsel Assisting in relation to tracking
of resources at the Churchill fire at [1.4] and [1.8]. The State repeats the
submissions it made in relation to the Churchill fire. In particular, the State
notes that the Operations Officer was not asked about the information in
CFA’s IMS or DSE’s IRIS regarding resources deployed. There was also
evidence that the Deputy Planning Officer (who was not called to give
8 Corbett Ex 874, WIT.3004.043.0298, [7]-[8] 9 Corbett Ex 874, WIT.3004.043.0298, [65] 10 Corbett T18233:22-T18233:31 11 Slijepcevic Ex 872, WIT.3024.006.0113, [16]; Slijepcevic T18195:25-T18195:27; Lloyd Ex 869, WIT.3028.001.0070, [11] 12
13
Lloyd Ex 869, WIT.3028.001.0070, [11] Corbett Ex 874, WIT.3004.043.0298, [68]
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evidence) was monitoring resources.14 There is no evidence to support the
contention by Counsel Assisting that there was no consideration by the IMT
of the redeployment of resources under Mr. Woods’ command.15 The
evidence before the Commission does not support a finding that there was
any confusion regarding the identity, location or roles of those on the
fireground or within the IMT. The evidence does not support any finding that
the absence of a written organisational chart or resources list had any
impact on the management of the fire, or caused any confusion about the
identity, location and roles of the personnel on the fire ground. It should also
be acknowledged that the Incident Controller, Mr. Lockwood, was asked
whether the absence of a resources list hindered his ability to control
resources on the fire ground, to which he replied ‘No’.16
9. The State notes the submissions of Counsel Assisting in relation to the
deployment of resources at the Murrindindi fire at [1.5]. The State repeats
the submissions made in relation to the Murrindindi fire as to the integration
of the resources of the two agencies during the initial attack phase.17
10. The State also wishes to clarify the following matters raised in the
submissions of Counsel Assisting:
10.1 It is inferred that the Regional Emergency Coordination Centres
(RECCs) were reliant on whiteboards for tracking resources.18 Mr.
Corbett’s evidence refers to the use of CAD and IMS to track
resources at RECCs.19
10.2 Counsel Assisting state that it is standard practice within the CFA to
track the movement of resources on the fireground via radio
14 Submissions of the State on the Churchill Fire RESP.3000.005.0075, [58]; Gillham Ex 395, WIT.3024.004.0069, [60] 15 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.8] 16 Submissions of the State on the Churchill Fire RESP.3000.005.0075, [5], [58], [110] 17 Submissions of the State on the Murrindindi Fire RESP.3000.005.0112 [34]-[35], [46] [189] 18 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.2(b)] 19 Corbett Ex 874, WIT.3004.043.0298, [19], [22]
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communications.20 It should be noted that radio communications
are also recorded in CAD.21
10.3 Counsel Assisting state that Operations Officers are charged with
transmitting important safety information to crews through the chain
of command.22 It should be noted that in larger fires the Operations
Officer will be responsible for strategic positioning of resources.
The State submits, however, that division and sector commanders
will be responsible for the tactical positioning of those resources at
the fireground. It is not solely the Operations Officer who is
responsible for the deployment of resources.
10.4 It is not correct to say that the whereabouts of CFA resources
deployed at incidents are not advised up the chain of command.23
The status of resources, whether en route or in attendance, is
available to view in IMS up the chain of command. ESTA and/or
CFA radio networks can provide immediate state-wide
communications to all CFA brigades, Operational Managers, Duty
Officers and individuals.24 DSE staff obtain information about the
status of CFA resources from CFA staff within the IMT.
10.5 The State notes the submissions of Counsel Assisting in relation to
the fitting of all the firefighting appliances used by Hancock Victoria
Plantations (HVP) with GPS tracking equipment.25 The State
submits that it is not reasonable to draw a comparison between
HVP and the CFA. The CFA has over 3000 appliances compared
to the 64 under the control of HVP. The logistical and financial
challenges to CFA in installing GPS equipment to all its appliances
are considerably greater. Care must also be taken to ensure that
sufficient system and network capacity is available to support a
20 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.2(c)]
Corbett Ex 874, WIT.3004.043.0298, [31] 21 22 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.3] 23 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.7] 24 Corbett Ex 874, WIT.3004.043.0298, [32] 25 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [2.2]
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significant increase in the numbers of vehicles and resources being tracked.26
10.6 The reference to DSE aircraft at [2.4] should refer to Aircraft
managed by the State Aircraft Unit.
10.7 At [2.7] Counsel Assisting refer to the fact that the CFA has not
attempted to standardise the use of GPS units by its brigades and
that it is undesirable for there to be a proliferation of different
brands and models of units.27 However, the CFA has developed
standards for the purchase of GPS units.28 It was the evidence of
Mr. Corbett that as long as the GPS has the basic output data it
was appropriate and could be used.29 Mr Mark Garvey also gave
evidence that most GPS units have standard outputs.30 The State
notes that it supports proposed recommendation two of Counsel
Assisting in relation to mapping, and in particular, the provision of
guidance to CFA personnel as to the purchase and configuration of
GPS units.31
Response to proposed recommendations
Proposed recommendations 1 and 2
1. By 31 December 2010, the CFA conduct an audit of its brigades to
determine which firefighting resources are fitted with Global Position
System (GPS) and/or Automatic Vehicle Locator (AVL) units and the
make and model of each such unit.
2. Where a CFA brigade installs such equipment in the future, it should
inform the relevant CFA regional office of the details.
11. The State supports proposed recommendations 1 and 2 of Counsel
Assisting.
26 See Lloyd Ex 869, WIT.3028.001.0070, [19] 27 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [2.7] 28 Corbett Ex 874, WIT.3004.043.0298, [80] 29 Corbett T18229:24-T18229:27 30 Garvey T16811:12-T16811:20 31 Submissions on Mapping RESP.3000.006.0115 at 0121
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Proposed recommendation 3
3. By 30 June 2012, the CFA ensure that appropriate GPS and AVL
equipment is installed in all its firefighting resources.
12. The State supports in principle proposed recommendation 3. The State
accepts that it is beneficial to have the capacity to track CFA firefighting
resources.
13. However, the State:
13.1 Considers that the reference to ‘all firefighting resources’ may be
too broad given that personnel are embraced in the term
‘firefighting resources’, which does not seem to be the intention of
Counsel Assisting.
13.2 Submits that the technology to be applied to resource tracking
should not be confined to GPS and AVL equipment, as better
technological solutions may be available.
13.3 Notes that a distinction needs to be made between what is required
purely for tracking purposes (safety and duress situations) and
what is required to meet individual agency business requirements
as part of an overall integrated system. These issues are
components of the Roadmap and Framework which are in evidence
before the Commission.
13.4 Notes that AVL requires a network to transmit GPS/AVL data as
well as a means to interpret that data onto and to translate that data
into the resource mapping system to make it both meaningful and
useful. AVL is not a useable product until all of these elements are
in place. Without the ability to display information received from the
tracking device at a remote location, fitting AVL units to appliances
would be a pointless exercise. To assist in operational decision
making, all operational information (prevention, preparation,
response and recovery) must be readily available through a holistic
emergency management information system which would include
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resource management and tracking.32 Therefore, while it might be
relatively easy to fit an AVL and GPS unit to all appliances, this
does not constitute an integrated resource tracking solution.33
13.5 Notes that other agencies, including other firefighting agencies
such as DSE, may also need to have their firefighting resources
tracked. The Roadmap and Framework represent an emergency
sector-wide multi-agency approach. Other agencies, including other
firefighting agencies such as DSE, will also need to have their
resource management and tracking needs met through this agreed
approach. The interoperability of such systems must be carefully
managed.
13.6 Does not accept 30 June 2012 as the relevant timeframe for one
element of a much larger and more complex project. The process
for identifying and procuring the appropriate systems will be
undertaken through the Roadmap and Framework. The proposed
timeline for this process matches a carefully planned consultation,
analytical and commercial program. To accept the 30 June 2012
date may adversely affect the suitability of the solutions identified
and may fail to meet the requirements of the CFA and other
agencies.
14. GPS and AVL technology is a small component of resource tracking which
in turn is a component of broader emergency information management
requirements. It is important to emphasise that GPS and AVL may not be
the complete answer to issues raised concerning the location of vehicles
and crews under duress and resource tracking. There are issues with the
use of this technology including:
14.1 Consideration of whether a signal can be transmitted properly,
whether there is an information management system to receive the
AVL signal and whether there are processes in place to be aware
that the vehicle and crew is under duress in the first place.34
32
33 34
Corbett Ex 874, WIT.3004.043.0298, [6] Corbett Ex 874, WIT.3004.043.0298, [76]-[77] Corbett T18224:15-T18224:21
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14.2 Not all current firefighting resources could necessarily support GPS
or AVL devices.
14.3 That where vehicle updates are regularly required, the data
communications needed for a connected radio network become
very demanding and networks can become easily congested. Care
must be taken to ensure that sufficient system and network
capacity is available to support any increase in the number of
vehicles or resources being tracked.35 There may be critical safety
implications associated with insufficient network capacity.
Therefore, adoption of these technologies needs to be part of a
whole-of-system solution, with the requisite analysis of
consequential changes, requirements, technology and hardware.
14.4 3G mobile data public networks are not a reliable option for
emergency services agencies as it is likely that at the time that the
AVL service is most needed it could be unavailable.36 While
reserving some mobile capacity on public networks for ESOs may
be explored, this is still based on the premise that the network will
be available during an emergency.37
14.5 While an AVL unit will transmit the location of an appliance this
information is of limited utility without full integration with other
emergency information.
15. The radio replacement projects being undertaken by DSE and CFA will
ensure that new digital radio terminals will be fitted to all CFA and DSE
appliances.38 The radio replacement project will provide significant benefits
including a built in GPS that will provide the necessary data to inform
emergency information management systems including AVL and an
automatic press button capability for red flag warning acknowledgements
and 'crew under duress' messages.39 Therefore the radio terminal hardware
element of an AVL solution is already funded for DSE and CFA.
Lloyd Ex 869, WIT.3028.001.0070, [19] Lloyd Ex 869, WIT.3028.001.0070, [20] Lloyd Ex 869, WIT.3028.001.0070, [20] Slijepcevic T18192:18-T18192:23; Slijepcevic Ex 872, WIT.3024.006.0113, [69] Corbett Ex 874, WIT.3004.043.0298, [79]
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16. It is likely that resource management and tracking through GPS technology
will become the dominant AVL technology used by ESOs across the State in
the foreseeable future. An important residual risk facing the State is not the
GPS solution itself but rather the interoperability of the system across
ESOs.40 The Roadmap and Framework are designed to mitigate that risk.
17. The complexities and costs associated with AVL and GPS technology are
considerable given the impact on communication networks, in-vehicle
installations and support and the need for inter-agency management
operations and resource dispatch. Therefore, a co-ordinated approach is
required by the State to ensure that technology needs are adapted and
integrated to meet the overall business needs of the various ESOs within the
limitations of technology available.41
18. A major focus of the research currently being undertaken by Emergency
Services Policy and Support in relation to the viability and expansion of AVL
is the critical requirement that any AVL system needs to be capable of
interfacing with a range of designated data systems in multiple agencies,
government departments and other organisations. Any available GPS and
AVL technology needs to be adapted and integrated to meet the overall
business needs of the various ESOs and where appropriate a standard or
standards need to be determined.42 These issues will be addressed in
accordance with the Roadmap and the Framework.
19. Any decision to expand the use of AVL and GPS requires careful
consideration of organisational priorities and the availability of funding either
internally or otherwise. The Budget process is a competitive process which
reflects the fact that the State has a limited pool of funds to spend. The
State will determine the overall level of expenditure and the amounts to be
allocated to competing priorities.43
20. The State would support an alternative recommendation:
The State ensure, through the agreed approach to planning and
providing integrated multi-agency emergency services
communications outlined in the State’s Emergency Services
Lloyd Ex 869, WIT.3028.001.0070, [21] Lloyd Ex 869, WIT.3028.001.0070, [22] Lloyd Ex 869, WIT.3028.001.0070, [14]
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Communications Strategic Framework and Roadmap, that
hardware for tracking and managing appliances is included in
appropriate CFA operational appliances dispatched to bushfires.
KERRI JUDD
MARITA FOLEY
Counsel for the State of Victoria
JOHN CAIN
Victorian Government Solicitor
14 May 2010
43 Lloyd Ex 869, WIT.3028.001.0001, [30]-[31]
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