National Bushfire Management Policy Statement for Forests and RangelandsPrepared by The Forest Fire Management Group for The Council of Australian Governments
Acknowledgements
In committing to this statement, governments acknowledge the important and on-going roles played by professional and industry organisations, and by staff and volunteer associations. This includes the policy and ‘standards’ setting roles played by the Forest Fire Management Group, the Australasian Fire and Emergency Service Authorities Council and Emergency Management Australia. The significance of the establishment in 2003 of Australia’s first, nationally coordinated, multi-disciplinary bushfire research program (the Bushfire Cooperative Research Centre), and the importance of an on-going national research effort, is also acknowledged.
Copyright
© Forest Fire Management Group 2014
This work is copyright. The text may be reproduced in whole or in part for your personal, non-commercial use or use within your organisation, subject to the inclusion of an acknowledgement of the source. Copyright in the photographs remains with the photographers and/or agencies.
Author: Forest Fire Management Group ISBN: 978-0-646-58481-2 Design: Papercut, PO Box 6264, O’Connor ACT 2602, www.papercut.net.au Printer: Bytes ‘n Colours
Cover photographs
Main: 2009 fuel reduction burn in high elevation, long unburnt native forest, Namadgi National Park, ACT (photo: Neil Cooper, ACT Parks and Conservation Service).
Small left: First day of Bushfire Cooperative Research Centre (CRC) multi-agency task force at Wandang, Victoria, one week after February 2009 Black Saturday fires (photo: Bushfire CRC).
Small middle: Epicormic regrowth following planned fire (photo: Bushfire CRC).
Small right: Forest fuel reduction burn on Stoneford Road, Victoria, in April 2010 (photo: Parks Victoria).
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Contents
Foreword 2
Introduction 4
PolicyScope 6 TheInternationalDimension 6
PolicyStatement 7 Vision 9 Principles 9 LearningtoLivewithFire–BushfiresareUnderstood,AcceptedandRespected 9 SharedandIndividualResponsibility 9 ProtectionofLivesastheHighestConsideration 9 ConsistencyofPurposeandUnityofCommand 9 ManageFireAccordingtotheLandscapeObjectives 10 DecisionswithinaRiskManagementFramework 10 IntegrationofLearningandKnowledge 10 MonitoringPerformance 10
StrategicObjectives 11NationalGoals 11 A. EffectivelyManagingtheLandwithFire 11 1. MaintainAppropriateFireRegimesinAustralia’sForestsandRangelands 11
2. BalancetheEnvironmentalImpactsofFire 12
3. PromoteIndigenousAustralians’UseofFire 12
B.InvolvedandCapableCommunities 12 4. CommunityEngagement 12
5. PublicAwarenessandEducation 13
C.StrongLand,FireandEmergencyPartnershipsandCapability 13 6. IntegratedandCoordinatedDecisionMakingandManagement 13
7. Employment,WorkforceEducationandTraining 13
8. BushfireRiskMitigation 13
9. BushfireResponse 14
10.SafetyinFireOperations 14
11.BushfireRecovery 14
12.InternationalResponsibilities 14
D.ActivelyandAdaptivelyManagingRisk 15 13.RiskManagement 15
14.InvestinginandManagingKnowledge 15
ImplementationandReporting 16
Appendix1:FireinAustralia 18
Glossary 21
2 National Bushfire Management Policy Statement for Forests and Rangelands
Foreword
Thevisioninspiringthispolicyisthat:
Fireregimesareeffectivelymanagedtomaintainandenhancetheprotectionofhumanlifeandproperty,andthehealth,biodiversity,tourism,recreationandproductionbenefitsderivedfromAustralia’sforestsandrangelands.
Toachievethisvisionfortheenhancedmanagementoffireinthelandscape,actionsmustfallunderfourstrategicobjectives:
• EffectivelyManagingtheLandwithFire.
• InvolvedandCapableCommunities.
• StrongLand,FireandEmergencyPartnershipsandCapability.
• ActivelyandAdaptivelyManagingRisk.
‘…appropriateuseofplannedfiretoprotectcommunitiesandtheirassets,andtoprotectandconservenaturalandculturalvalues.’
Australiaandmanyotherfire-pronepartsoftheworldhaveexperiencedanincreaseinbushfiresoverthepastdecade.Thebushfireshaveincreasedinintensityandcausedmoredamage.ThereisincreasingdebatewithinAustraliaandoverseasabouthowbesttoreducebushfirerisk.Thisdebateisoccurringagainstabackdropofachangingclimateandagrowing,moreurbanisedpopulation.ItisinformedbytheVictorianBushfiresRoyalCommissionintothe2009BlackSaturdayBushfireswhichledtothedeathsof173peopleanddestroyedover2000homes.
Centraltothisdebateistherolefireplaysinmaintainingandenhancingbiodiversity.Sustainablelong-termsolutionsareneededtoaddressthecausesofincreasedbushfirerisk.Greaterinvestmentinpreventionandpreparednessisessential.
ThispolicystatementandsupportingstrategieshavebeendevelopedbyallAustraliangovernmentstoguidetheevolutionofeffectiveandecologicallysustainablefireregimeswithinAustralia.ItbuildsonexperiencegainedacrossAustraliaandassistsindevelopingamorecoordinatedapproach.ThispolicylaysthefoundationforfuturebushfiremanagementinAustralia,andensuresthatAustraliawillcontinuetobeagloballeaderandinnovatorofbushfiremanagement.
Thepolicyfocusesonthemanagementoffireinforestsandrangelands.Whileitlargelycoverspubliclands,thegeneralissuesandprinciplesapplymorewidely.Thepolicyplacespriorityontheprotectionoflife,aswellastheneedfordueconsiderationoftheimportantresponsibilityofgovernmentstoaddressthepurposeforwhichtheysetasidethebushlandthatsurroundsmanyurbanareas.ThepurposebeingthatallAustralians,nowandinthefuture,shouldbenefitfromtherolesoftheselandsintheprovisionofecosystemservicessuchasconservingbiodiversity,heritageandcarbon,producingwaterandtimber,andhostingrecreationandtourismopportunities.
KinglakeRoad,Victoria,oneweekaftertheFebruary2009BlackSaturdayfires(photo:BushfireCRC).
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Todelivertheseobjectives,fourteennationalgoalshavebeenidentified:
1. MaintainAppropriateFireRegimesinAustralia’sForestsandRangelands.
2. BalancetheEnvironmentalImpactsofFire.
3. PromoteIndigenousAustralians’UseofFire.
4. CommunityEngagement.
5. PublicAwarenessandEducation.
6. IntegratedandCoordinatedDecisionMakingandManagement.
7. Employment,WorkforceEducationandTraining.
8. BushfireRiskMitigation.
9. BushfireResponse.
10. SafetyinFireOperations.
11. BushfireRecovery.
12. InternationalResponsibilities.
13. RiskManagement.
14. InvestinginandManagingKnowledge.
Knowledgeofthecostsandbenefitsofalternativebushfiremanagementstrategiesisincomplete.Whilecommunityexpectationsoflandandfiremanagersarehigh,theyvaryintermsofwhatismostvaluedfromforestsandrangelands.
Firepronepartsoftheworldhavealwayshad,andwillcontinuetohave,bushfires.Thecurrentapproachtobushfiremanagementisineffectiveduetochangestosettlement,demographicsandclimate.Theapproachhasaresponseandrecoveryfocus,whichisnecessaryfordealingwithimmediatechallenges,butisunsustainableasastand-alonesolution.
‘Greaterinvestmentinpreventionandpreparednessisessential.’
Sustainablelong-termsolutionsareneededtoaddressthecausesofincreasedbushfirerisk.Greaterinvestmentinpreventionandpreparednessisessential.Thisrequirestheappropriateuseofplannedfiretoprotectcommunitiesandtheirassets,andtoprotectandconservenaturalandculturalvalues.Italsoimpliesgreatereffortstoimproveoverallunderstandingofbushfireriskbygovernments,agenciesandcommunities,andtoencourageanacceptanceoflivingwithfire.
Thisstatementwasjointlydevelopedbygovernmentsundertheauspicesoftwoministerialcouncils1,inconsultationwithlandmanagementandruralfireagencies.ThestatementwasendorsedbyallmembersoftheCouncilofAustralianGovernments(COAG),includingtheAustralianLocalGovernmentAssociation,duringlate2011andearly2012.
Inendorsingthisstatement,governmentscommittedtoimplementingthepoliciesitoutlinesforthebenefitofpresentandfuturegenerationsofAustralians.COAGacknowledgedthatimplementationofpoliciesrequiringfundingwillbesubjecttobudgetaryprioritiesandconstraintsinindividualjurisdictions;howevertheprinciplesidentifiedinthisdocumentwillbereflectedinalltheindividuallandandfiremanagementagencies’codesofpractice(oralternativeinstruments).
Tim McGuffog
ChairForestFireManagementGroup
1 ThePrimaryIndustriesMinisterialCouncilandtheNaturalResourceManagementMinisterialCouncil.
4 National Bushfire Management Policy Statement for Forests and Rangelands
Introduction
• Localgovernmentshaveresponsibilitiesforlanduseplanningwhichaffectspublicandprivatefiremanagement,andwhichcaninfluencetheprotectionoflifeandproperty,particularlyinthezonewhereurbanandmorenaturalareasmeet.Localgovernmenthasacriticalroleinmanagingandsupportingcommunityrecoveryeffortsafterseriousfireevents,andhasaprimarybushfireresponseroleinsomejurisdictions.
Privatelandownersandleaseholders–aslandandfiremanagersoflargetractsofforestsandrangelands–arealsocrucialinmanaginglandandfire.
GovernmentsaremindfulofthemanyvaluesofAustralia’slandscapesandoftheroletheyplayinthefullsuiteofecologicalprocessesthatsustainlifeonthiscontinent.Governmentsarealsoincreasinglyawareoftheimportanceofthethreatthatfirecanposetolifeandproperty,andoftherelationshipbetweenfireregimesandthemaintenanceofbiodiversityandheritagevalues.Finally,governmentsareacutelyawareofthecontributionthatruralactivitiessuchasagriculture,forestry,miningandtourismmaketothenationaleconomyandtoregionalandlocalemployment.Inappropriatefireregimes(especiallyonesthatpredisposethelandscapetocatastrophicfires)exacerbatetheriskofmajoreconomicimpactonregionallycriticalindustries.
Australianlandscapescompriseacomplexarrayofecosystemsandlanduses,characterisedbymarkedregionaldifferencesanddifferentcommunityvalues.ThemanagementoffireacrossAustraliarequirespoliciesandpracticesthatsuitregionalneeds.Bushfiremanagementpolicyalsomustbesufficientlyadaptivetobeabletoanticipateandrespondeffectivelytodriverssuchasshiftsinclimate,betterunderstandingofbushfireriskandbiodiversity,changesincommunityattitudes,andlanduseandsettlementpatterns.Awarming,dryingclimate(insouthernAustraliainparticular),withamplifiedvariabilityandmoreextremeeventswillalterbushfireriskandthenatureanddistributionofecosystems.
ThisstatementoutlinesagreedobjectivesandpoliciesforthefuturemanagementofbroadareaorlandscapefireinAustralia’sforestsandrangelands.Itis,inpart,asupplementaryresponsebytheAustralian,stateandterritorygovernmentstothe2004reporttoCOAG,oftheNationalInquiryonBushfireMitigationandManagement.AninitialjointresponsetothatreportwaspublishedbyCOAGinlate2004.ThisstatementalsocomplementsrelevantsectionsoftheNationalForestPolicyStatement(whichCOAGreleasedinDecember1992),Australia’sBiodiversityConservationStrategy2010–2030(releasedinOctober2010),whichaimstoensureourbiodiversityis“healthyandresilienttothreats,andvaluedbothinitsownrightandforitsessentialcontributiontoourexistence”,andAustralia’sNativeVegetationFramework(releasedinDecember2012)whichaimstomanagenativevegetationin“anecologicallysustainablewaythatpromotesitsenduringenvironmental,economic,social,culturalandspiritualvalues”.BothAustralia’sBiodiversityConservationStrategy2010–2030andAustralia’sNativeVegetationFrameworkpromotetheuseofecologicalfireregimestoconservebiodiversityandprotectthepublic.ThestatementalsocomplementsthePrinciplesforSustainableResourceManagementintheRangelands(releasedbytheNaturalResourceManagementMinisterialCouncilinApril2010).
ThethreelevelsofgovernmentinAustraliahaveresponsibilitiesforthemanagementoffire:
• TheAustralianGovernmentisresponsibleforcoordinatinganationalapproachtobothenvironmentalandinternationalpolicyrelatedissues.TheAustralianGovernmentisplayinganincreasinglyimportantroleinsupportingthestatesinpreparingforandrespondingtomajoremergencies.
• Stateandterritorygovernmentshaveprimaryresponsibilityforlandandfiremanagement,inrecognitionoftheconstitutionalresponsibilityofthestatesforlandusedecisions,emergencymanagementandthemanagementoflargeareasofforestsandrangelands.
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Infirepronepartsoftheworld,aframeworkthatenablesgovernmentsandcommunitiestomeetfuturebushfiremanagementchallengesisessential.Insuchregions,itistypicallythecasethat:
• firecanbedamaginganddevastatinginsomecircumstances,andessentialformaintainingproductiveandhealthylandscapesinothers;
• riskofadverseimpactsfrombushfireisincreasingduetoclimatechange,increasedsettlementanddevelopment,andgreaterrelianceonproductsandservices(tourism,water,carbonandtimber)fromproductionandconservationlands;and
• communityvaluesarechanging,withincreasedexpectationsforinvolvementin,andtransparencyof,decisionmaking.
Thisstatementprovidesavision,principles,policyobjectivesandstrategiesforthemanagementoflandscapefirebylandandfiremanagersinAustralia.Theseprinciplesneedtoinformlandandbushfiremanagementinstrumentsandarrangements(e.g.codesofpractice)toensuretheyareimplementedattheoperationallevel.
‘…firecanbedamaginganddevastatinginsomecircumstances,andessentialformaintainingproductiveandhealthylandscapesinothers.’
Vigorousnativeforestepicormicregrowthfollowingahighintensitywildfire(photo:AndrewTatnell).
6 National Bushfire Management Policy Statement for Forests and Rangelands
PolicyScope
especiallyofusingplannedfire.Insomecasesittransferstheresponsibilityformanagingrisktoadjacentlandandfiremanagers.Developmentalsointroducesadditionalsourcesoffireignitionthatincreasethechancesoffireimpactingonwater,timber,tourismandotherbenefitsoftheneighbouringlands.Thisstatementisnotapolicyonregionalgrowthorlanduse.Itdoeshoweverhighlightthisissueandadvocatesforbettermechanismsforinfluencingdevelopmentoutcomes.
Thestatementaimstoestablishthenecessaryknowledgeanddecisionmakingframeworkneededbylandandfiremanagerstoreducebushfirerisktothefullrangeofnaturalandhumanassetsthroughimplementingappropriatefireregimes.
TheInternationalDimensionTheinternationalbushfiremanagementcommunityisevolvinginbreadthandcomplexity.Anotabledevelopmentisthegrowthofmutualsupportarrangementsthatjurisdictionsusetoshareresourcesduringdifficultfireseasons.Australiaenjoysfruitfulrelationshipswithland,fireandemergencymanagementagenciesoverseas,notablyinNewZealand,theUnitedStatesandCanada.Thereremainsignificantopportunitiestodeepenthesepartnershipsbeyondknowledgeexchangeandemergencysupport.
ThispolicystatementwillensurethatAustraliacontinuestobealeader,aswellasathoughtfulandcreativecontributor,tothemanagementofbushfireinternationally.
ThegeneraldirectionofthisstatementisconsistentwiththeUnitedNationsVoluntaryGuidelinesforFireManagement,whichwasdevelopedfollowingarecommendationofthe3rdInternationalWildlandFireSummit,heldinSydneyinOctober2003.TheVoluntaryGuidelinesweresubsequentlyendorsedbythe8thSessionoftheUnitedNationsFAOCommitteeonForestryinMarch2007,andbythe4thInternationalWildlandFireSummitinMay2007.
Thestatementplacespriorityontheprotectionoflife,aswellastheneedfordueconsiderationoftheimportantresponsibilityofgovernmentstoaddressthepurposeforwhichtheysetasidethebushlandthatsurroundsmanyurbanareas.ThepurposebeingthatallAustralians,nowandinfuture,shouldbenefitfromtherolesoftheselandsinconservingbiodiversity,heritageandcarbon,producingwaterandtimber,andhostingrecreationandtourismopportunities.Thisstatementrecognisesthatreasonableeffortstomanageriskmustconsiderthepurposeoftheselandsandtheroleoffireinmanagingthem.
Thestatementacknowledgesthepositiverolethatplannedfirecanplayinreducingtheriskofadverseimpactsfrombushfireandinmanagingforestandrangelandecosystems;butitalsorecognisesthatinappropriatefireregimescandamagetheseecosystems.Indoingso,italsoacknowledgesthatclimatechangemayfurtherreducetheadaptivecapacityofournaturalecosystemsandthreatentheirabilitytoprovideservicesessentialforhumanlife,livelihoodandwellbeingsuchaswater,climatemoderation(includingcarboncapture),biodiversityandtourismandrecreationopportunity.Itisalsoacknowledgedthatwhileplannedfireregimesarethemainmethodavailabletolandandfiremanagerstoenhancetheresilienceoftheseecosystemsandhencereducethisthreat,therearecertainplaceswhereothermethodsoffuelreductionwillneedtobeutilisedtoachievethissameoutcome.
‘…positiverolethatplannedfirecanplayinreducingtheriskofadverseimpactsfrombushfireandinmanagingforestandrangelandecosystems…’
BeforeEuropeansettlement,bushfiresimpactedonnaturalecosystemsaspartofnaturalprocessesandindigenouspractice.Now,significantandsometimesinappropriatedevelopmentofsettlementsandcommercialventuresadjacenttoforestsandrangelandsexposesmanypeople,homesandassetstoriskfromfire.Itincreasesthecomplexityofmanagingadjacentforestsandrangelandsand
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PolicyStatement
Itisclearthatinforestandrangelandecosystems,reducingthefuelreducesbushfirerisk.Manytechniquesareavailabletoreducefuel(suchasslashing,grazing,physicalremoval)andoverallbushfirerisk(suchasreducingignitions,rapidresponse,communitypreparedness),butthisstatementfocusesontheroleofplannedfirewhichistheonlytechniqueavailableforthewiderreductionoffuelsinfireproneandfireadaptedcommunities(i.e.thosesuitablefortreatment).Italsorecognisesthatthereareoccasionswhereplannedfirecannotbeusedandalternativetechniqueswillneedtobeutilised.
‘…inforestandrangelandecosystems,reducingthefuelreducesbushfirerisk.’
Successivebushfireshavesignificantlyaffectedthelives,wellbeingandlivelihoodsofcommunitieslivingwithinornearmanyofourfireproneforestsandrangelands.Drought(madeworsebyclimatechange)andbushfirehavealsonegativelyimpactedonthehealthandproductivityoftheseecosystems.Climatechangewillfurtherincreasebushfireriskandstressonourhumanandnaturalcommunities.
Reducingtheoccurrence,severityandimpactofbushfires,andenhancingtheresilienceofournaturalecosystemsbymanagingfireinourforestandrangelandsarecoreobjectivesofthisstatement.Localandregionalactionscontributetothebroaderoutcomesacrosstheentirelandscape.Theseoutcomesneedtoreflectcommunityvaluesandexpectationsincluding:
• communityprotection;
• theconservationofnaturalbiodiversity(plantandanimalspecies,habitat);
• theproductionofwater,carbon,andtimber;
• theprovisionoftourismandrecreationopportunities.
Optimisingoneormoreofthesevaluesoftencomesattheexpenseofothers.Wherethesevaluesconflict,theprioritymustbefirefighterandcommunitysafety,aswellasprovidingessentialservices.However,ourforestsandrangelandsarealsoessentialforthelife(throughwaterandclimatemoderation),wellbeing(throughrecreationandrelaxation)andlivelihood(throughwaterforproductionandindustry,agriculturalproduction,timberandtourism)ofcurrentandfuturegenerations.Research,monitoringandstakeholderandcommunityengagementisessentialforinformedandintegrateddecisionmakingnowandintothefuture.
‘Reducingtheoccurrence,severityandimpactofbushfires,andenhancingtheresilienceofournaturalecosystemsbymanagingfireinourforestandrangelandsarecoreobjectivesofthisstatement.’
ImplementingaplannedfiredtoreducefuelloadsinnativeforestatDeepCreek,SouthAustralia,inSeptember2011(photo:ChantelleO’Brien,DepartmentofEnvironment,WaterandNaturalResources,SouthAustralia).
8 National Bushfire Management Policy Statement for Forests and Rangelands
Landandfiremanagershavecriticalrolesandresponsibilitiesinachievingtheobjectivesofthisstatement.Theseinclude:
• usingplannedfiretoreducefuelandmaintainproductiveandhealthyecosystems;
• reducingtheoccurrenceofunplannedandunwantedfires;
• preparingfor,andrapidlyrespondingto,unplannedfiresonorneartheirlands;
• managingbushfires,wherepossible,tocontributetotheachievementofpositiveoutcomes;
• leadingandsupportingemergencyeffortsasappropriate;
• workingcloselywithcommunities,stakeholdersandpartners;
• learningthroughresearch,monitoringandadaptivemanagement;and
• applyingbestpracticebydevelopingandadaptingtheiragencies’codesofpracticetodeliverontheprinciplesandpoliciesthatliewithintheNationalBushfireManagementPolicyStatementforForestsandRangelands.
Reducingbushfireriskinvolvesimmediateandongoingcosts,andcarriesrisks–itthereforerequiresgovernmentsandtheiragenciestoworkwithcommunities,families,individualsandindustries.Landandfiremanagersmustworkcloselywithfire
andemergencymanagementpartnersinpreventing,preparingfor,respondingtoandrecoveringfrombushfires.Landandfiremanagersleadtheseactivitiesinsomeinstancesandsupporttheiremergencymanagementandlanduseplanningpartnersinothers.Land,fireandemergencymanagersworkwithprivatelandmanagerstomanagerisksacrossareaswithdifferinglanduses.Inthecaseoflandandfiremanagers,thisisona“goodneighbour”basis,wherecooperationisessential.Fireandemergencyservicesusuallyhaveresponsibilityforcommunitypreventionandpreparedness,andtheprovisionoffireresponseservicesonprivatelandinmostjurisdictions–theycoveralllandsinsome.
Inacknowledgingthepositiverelationshipbetweenincreasedand“smarter”plannedburning,reducedbushfireriskandbetterecologicaloutcomes,thisstatementacknowledgesthateffortandknowledgearerequiredtocontinuouslyreduceriskandincreaseresilience–especiallyinamoredroughtandfireproneenvironment.Thepolicystatementprovidesaframeworkforacollaborativeapproachtoriskandadaptivemanagement.Thestrategiesidentifiedwithinthestatementreflectthecurrentbestunderstandingofrisks,andthebalancebetweenparticularareasintrinsicvaluesandthevaluesthatcommunitieshold.Thiswillultimatelyinfluencefuturedecisionmaking,includingresourceallocation.
‘Australiacannotbe“fire-proofed”…’
LowintensityfireinlongunburntnativeforestinNamadgi,ACT,2009(photo:NeilCooper,ACTParksandConservationService).
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VisionThevisioninspiringthispolicyisthat:
Fireregimesareeffectivelymanagedtomaintainandenhancetheprotectionofhumanlifeandproperty,andthehealth,biodiversity,tourism,recreationandproductionbenefitsderivedfromAustralia’sforestsandrangelands.
PrinciplesTheprinciplesbelowarebasedontheIndicativeNationalBushfirePrinciplesincludedinthe2004ReportoftheNationalInquiryonBushfireMitigationandManagement2preparedfortheCouncilofAustralianGovernments(COAG).COAG’sresponsetothereportacceptedtherecommendationthatnationalprinciplesforbushfiremitigationandmanagementshouldbedeveloped,andagreedthattheindicativeprinciplesbeusedasastartingpoint3.TheprinciplesweredevelopedbytheForestFireManagementGroupinconsultationwiththeRuralLandManagementGroupoftheAustralasianFireandEmergencyServiceAuthoritiesCouncil.
LearningtoLivewithFire–BushfiresareUnderstood,AcceptedandRespectedLikeothernaturalhazards,bushfirescannotbeprevented.Australiacannotbe“fire-proofed”anymorethanitcanbemadeflood-proofordrought-proof.Bushfiresareinevitable,andinsomeinstancescanbemanagedtoassistinachievinglandmanagementobjectives.Theimpactofunplannedfiresneedstobeminimisedthrougheffectiveactionbasedonlearningandunderstanding.Livingwithbushfiresalsorequiresstrongself-reliance.
2 CouncilofAustralianGovernments(2004).ReportoftheNationalInquiryonBushfireMitigationandManagement.AustralianGovernment.Canberra.415pp(www.coagbushfireenquiry.gov.au/findings.htm).
3 CouncilofAustralianGovernments(2005).ResponsetotheNationalInquiryonBushfireMitigationandManagement.AustralianGovernment.Canberra.(SeeRecommendation14.1).(www.coagbushfireenquiry.gov.au/findings.htm).
SharedandIndividualResponsibilityBushfiremitigationandmanagementisasharedresponsibilitybetweenthecommunity,industriesandfirms,landandbushfiremanagementagenciesandgovernments–wherealltakeindividualactionandresponsibilityinanintegratedway.Wellinformedandpreparedindividualsandcommunities,complementtherolesoflandandbushfiremanagementagencies.Apartnershipapproachisthebestwaytominimisebushfireriskstolives,propertyandsocialandenvironmentalassets.
ProtectionofLivesastheHighestConsiderationFirefighterandcommunitysafetymustbeattheforefrontofbushfireriskmitigationandmanagementdecisionmaking.Althoughthereshouldalwaysbeabalancebetweenenvironmentalconsiderationsconsistentwiththeprimarypurposeoflanduseandtheneedforintergenerationalequity,theprotectionofhumanlifemustremainparamount.
ConsistencyofPurposeandUnityofCommandThereneedstobeconsistencyofpurposeduringbushfireriskmitigation,andunityandclarityofcommandforallfireresponse,irrespectiveoforganisationalstructures.
IncidentManagementTeam(IMT)operatingatHorsham,Victoria,in2004(photo:DepartmentofEnvironmentandPrimaryIndustries,Victoria).
10 National Bushfire Management Policy Statement for Forests and Rangelands
MonitoringPerformanceThestate,territoryandlocalgovernmentsneedtoregularlyreviewtheirperformanceagainsttheseprinciplesandotherappropriateindicators.Performancereviewshouldbecontinuousandnotbedeferreduntilinquiriesarecompletedafteramajorbushfireevent.Thisneedstoincludetheenvironmentalimpactoffireregimesacrossthelandscapeandtheeffectivenessofstrategiesoverlongertimeframes.Principlesmustbemonitoredregularlyiftheyaretoimproveperformanceandbringaboutchange.
‘Nosingleactionwillleadtotheeliminationofbushfirerisk.’
ManageFireAccordingtotheLandscapeObjectivesAustraliahasagreatdiversityofclimates,environments,landusesandbuiltassets.Bushfiremanagementobjectivesandoutcomeswillvaryacrosslandscapesandovertime.Clearagreedobjectivesandanadaptivemanagementapproacharerequiredforeffectiveimplementation.
DecisionswithinaRiskManagementFrameworkNosingleactionwillleadtotheeliminationofbushfirerisk.Decisionsaboutbushfiremitigationandmanagementmustbemadewithinanintegratedriskmanagementframework,andbetransparent.
IntegrationofLearningandKnowledgeAnalysisoffireeventsisbasedonoperationalandscientificevidenceandresearch.Thisshouldbeinformedbyextensiveandconsistentnationaldata,includingfireregimemapping.Thebestresultswillbeachievedbyintegratingallformsofknowledge,andgoodinformationaboutfirehistory,withanalysisatthelocalandregionallevels.
Protectionofimportantremnantvegetationduringa2010plannedfireinVictoria(photo:ParksVictoria).
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StrategicObjectivesThegovernmentsagreethattoachievetheirvisionfortheenhancedmanagementoffireinthelandscape,fourstrategicobjectivesshouldbepursued.
A. Effectively Managing the Land with Fire:FireisusedtomanageAustralia’sforestsandrangelandstoachieveoutcomesthatinvolvereducedriskfromseverebushfires,andenhancetheresilienceofecosystemsinthefaceofclimateandotherchange.
B. Involved and Capable Communities:Communityvaluesandavailableknowledgeareusedtoformulatesupportingstrategiesandactions.Initiativesbyemergency,healthanddevelopmentagenciestopromoteresilient(andcapable)communitiesaresupportedthroughpromotionoflivingwithfireprinciples.
C. Strong Land, Fire and Emergency Partnerships and Capability:Highpriorityobjectivesandthebestavailableknowledgeareusedtoguideinvestmentincapabilityandcooperativeworkingarrangementswithpartnersandstakeholders.
D. Actively and Adaptively Managing Risk:Learningsfromnewresearch,managementexperience,communityinteraction,andmonitoringofoutcomesareusedtocontinuallyimprovelandandfiremanagementstrategies.
NationalGoalsThegovernmentsagreethattoachievetheirvisionforbettermanagingfireintheAustralianlandscape,fourteennationalgoalsshouldbepursued.Eachofthesegoalsisdescribedbelowandbroadstrategiesforprogressingthesegoalsareintroduced.
A. EffectivelyManagingtheLandwithFire
1. MaintainAppropriateFireRegimesinAustralia’sForestsandRangelands
Manageplannedfireandunplannedfire(whereappropriate),toreducetheriskofseverebushfiresimpactingoncommunities,andenhancethehealth,biodiversityandresilienceofAustralia’sforestsandrangelands.Underpinningthisgoalisanunderstandingthatplannedandmanagedfirecanplayapositiveroleinreducingthescaleandmagnitudeofbushfires,andpromotemorehealthyandproductiveforestandrangelandecosystems.
HighintensitypostharvestslashburnatRosebud,Victoria,in2010toensurehealthyandvigorousregeneration(photo:ParksVictoria).
12 National Bushfire Management Policy Statement for Forests and Rangelands
Keystrategiesincludedefiningtheoutcomesrequiredtoreducetheriskofseverefiresandpromotemorehealthyandresilientecosystems–andthefireregimeswhichmosteffectivelyachievethese.Whereappropriate,thesuitabilityofIndigenousfireregimeswillbeconsidered.Astrategicapproachtoresearch,monitoringandlearningaimedatsupportingtheuseoffireinthelandscapewillleadtoanimprovedunderstandingoftherelationshipbetweenfireregimes(andindividualfires)withrisk,biodiversity,ecosystemhealthandresilience,naturalresourcemanagementandproduction,catchmentwateryieldsandwaterqualityandgreenhousegasstorageandemissions.
Anotherkeystrategyistodevelopaframeworkthatsupportseffectivestrategicdecisionmaking.Stakeholdersunderstandablystrivetoavoidtheundesirableimpactsofsinglefireeventsatparticularplaces.Thisoftencreatesconflictbetweencompetingvaluesandobjectivesattheexpenseoflonger-termandlandscapeleveloutcomes.Theframeworkwouldallowcomparisonsbetweenbushfiresandregimesofplannedburning,overperiodsofmanyyears,acrossthelandscapeasawhole,formultiple,diverseandinterrelatedvalues.Itwillbedevelopedusingcurrentknowledgefromresearch,casestudies,expertopinionandtheinputofkeystakeholders,subjecttoongoingrefinementbasedonexperienceandnewinformation.
Inthemeantime,landandfiremanagerswillnotletthelackofacomprehensiveframeworkforplannedfire,orshort-termandlocalrisksinvolvedinusingfire,undulyconstraintheuseofplannedfiretomanagetheriskofseverefireimpacts.
2. BalancetheEnvironmentalImpactsofFire
Maximisetheenvironmentalbenefitsthroughuseofappropriatefireregimes,whileminimisingtheadverseenvironmentaleffectsoffireonenvironmentalassetsorservicessuchaswater,timber,carbonandairsheds.
3. PromoteIndigenousAustralians’UseofFire
WhererelevanttoIndigenouspeople,andappropriate,furtherintegratetraditionalburningpracticesandfireregimeswithcurrentpracticesandtechnologiestoenhancebushfiremitigationandmanagementinAustralianlandscapes.
B. InvolvedandCapableCommunities
4. CommunityEngagement
Improvetheengagementofcommunitiesinfireproneareasinbushfiremitigationandmanagementsothatresponsibilityforbushfiremanagementisacknowledgedandappropriatelysharedthroughgovernments,agencies,industriesandindividualstakingindividualandcombinedactionasapartofacomprehensivesuiteofstrategies.Toachievethis,opportunitiesforeffectivepublicparticipationindecisionandmoretransparentriskmanagementprocessesareneeded.
Improveopportunitiesfor,andtheabilityof,landandfiremanagerstopromotesharedlearninganddiscussionandtobetterreflectcommunityvaluesindecisionmakingthroughcommunityengagement,includingwithabroaderstakeholdergroupofindividualsandgroupswhomaybeaffectedbyfire,undertakeactivitiesthatinfluencebushfirerisk,orwhohaveconcernforthesocial,environmentalandeconomicassetsandobjectivesthatmightbeinfluencedbyfire,orthestrategiesusedtoreduceitsimpacts.Thedevelopmentandsharingofnewandbetterwaysofachievingthisgoalthroughplanning,actionandsupportingsocialresearchwillbecriticaltosuccess.
TraditionallightingofthelandscapeinCapeYork,inJuly2011(photo:OliverCostello,NSWOfficeofEnvironmentandHeritage).
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5. PublicAwarenessandEducation
Fostercommunityunderstandingof,andsupportfor,bushfiremanagementinAustralia–includingtheroleofplannedfireinreducingriskandpromotinghealthyandresilientecosystems.
Landandfiremanagerswillalsosupporttheirpartneremergencymanagementagenciestoincreasethecommunity’scapacitytolivewithfire.Thiswillinvolveprovidinginformationandsupportinginitiativesthataimtoenhancepreparednessandresilience.Thephilosophyofsharedresponsibilityisintegraltothisstrategy.
C. StrongLand,FireandEmergencyPartnershipsandCapability
6. IntegratedandCoordinatedDecisionMakingandManagement
Improvedecisionmakingprocessesthroughintegratedstrategicandoperationalplanningbetweenland,fireandemergencymanagementagencies.Thiswillincludetheenhancementofmutualaidandlearning,andthedevelopmentofgoodpracticeexamples.
7. Employment,WorkforceEducationandTraining
Buildemploymentopportunitiesandtheskillbaseofpeopleworkinginlandandbushfiremanagement(includingIndigenouscommunities)toensurethatAustralianagenciescontinuetohaveaccesstograduates,technicalandfieldpersonnelwithappropriatespecialisededucationandtraining.
8. BushfireRiskMitigation
Improvetheefficiencyandeffectivenessofprogramsdesignedtominimisethenumber,spreadandadverseimpactsoffuturebushfires.Thisincludesadvocacyabouttheimpactsthatlanduseandsettlementchangeshaveonbushfireriskandadjacentlandandbushfiremanagementpractices.
Supportandconductresearchandshareinformationaboutfireprevention,preparedness,responseandrecoveryinforestandrangelandenvironments,forthepurposeofincreasingtheefficiencyandeffectivenessofland,fireandemergencymanagement.Thisincludesimprovingknowledgeoftheimpactsofclimatechangeandseasonalanddailyweatherpatternsonbushfirerisk.
‘Thephilosophyofsharedresponsibilityisintegraltothisstrategy.’
TownmeetingatSwiftsCreek,Victoria,inFebruary2003(photo:DepartmentofEnvironmentandPrimaryIndustries,Victoria).
14 National Bushfire Management Policy Statement for Forests and Rangelands
9. BushfireResponse
Improvetheefficiencyandeffectivenessofprogramsdesignedtominimisetheadverseimpactsofbushfiresthroughimprovedcapability,knowledge(e.g.resourceeffectivenessandfirebehaviourprediction)andsupportfortheinitialandongoingattackofbushfires.Thisalsoincludesworkingwithfireandemergencymanagementpartnerstoachievebettermultiagencyandmultijurisdictionalcooperation,andtoimprovetheprovisionoftimelyinformationandadvicetocommunities.
Acknowledgethecomplexityofmakingdecisionsandworkinginemergencyenvironments,andsupportthedevelopmentofimprovedincidentandemergencymanagementframeworks,aswellasmoreappropriatesupportingstatutesandinquiryprocesses.
10. SafetyinFireOperations
Improvetheeffectivenessofprogramsdesignedtoimprovethehealthandsafetyofallpersonnelworkinginongroundfiremanagementoperationsandtominimisetherelatedriskstonearbycommunities.Thisincludesthedevelopment,communicationandongoingimprovementofpolicies,plansandprocedurestobestreduceriskforfirefightersandotherpersonnelonandaroundthefireground.
11. BushfireRecovery
Improvetheeffectivenessofprogramsdesignedtominimisetheadverseimpactsofbushfiresuppressionoperationsonhumancommunities,firefightersandonecologicalandotherenvironmentalvalues.
12. InternationalResponsibilities
EnsurethatAustraliacontinuestobealeaderintheinternationalbushfirecommunityandfulfilsitsobligationsunderrelevantinternationalagreements.
Strengthenandfurtherdeveloppartnershipsbetweenland,fireandemergencymanagementpartnersandstakeholdersbothnationallyandinternationally(buildingonexistingarrangementswithNewZealand,theUnitedStatesandCanada)throughbothformalandinformalmeans.Thesewillbeunderpinnedbyappropriateagreements,protocolsandstandardsthatfacilitateemergencysupport,generalandtechnologyexchanges(includingtrainingandlearningopportunities)andinformationsharingthatsupportstheachievementoftheseobjectives.
InternationaldeploymentofAustralian/NewZealandfirefighterstotheUnitedStatesofAmerica–Boise,Idaho,August2006(photo:ParksVictoria).
15
D. ActivelyandAdaptivelyManagingRisk
13. RiskManagement
Ensurethatthemanagementoflandscapefireisbasedon“bestpractice”approachestomanagingfireregimesandrisk.Suchapproachesshouldbebasedonsoundscientificinformationandorganisationalandcommunityvaluesandlearning,andallowtheefficientuseofresources.
Developriskandadaptivemanagementsystemsthatsupporttheassessmentandreportingoflandscapeandlocallevelrisks,andidentifycost-effectivestrategiesforachievingoutcomes(andperformancemeasures)thatreducetheimpactofseverefiresandpromoteecosystemresilience.
14. InvestinginandManagingKnowledge
Bushfiremanagementmustbesupportedbypolicies,strategiesandproceduresbasedonthebestavailableknowledgeregardingthephysicalrelationshipsbetweenfireregimesandecosystemprocesses,themanagementofrisk,communityvaluesandexpectationsandhowtheseinteract.
Moreknowledgeisneededtobetteridentifythefireregimesthatoptimisevaluessuchascommunityprotection,carbonsequestration,water,timberandagriculturalproductionandbiodiversityconservationamenityoverwholelandscapesthroughtime.Naturally,therelativemixwillvaryfordifferentregionsacrossthecontinentdependingonthesocial,economicandenvironmentalattributesofeachregionandguidingculturalvaluesandexpectations.Moreknowledgeisalsoneededonfirebehaviour,fireweatherandfireclimateandhowtheserelatetoriskanditsmitigation.
Landandfiremanagerswillcontinuetoimprovelinkswithcooperativeresearchcentres,universitiesandotherresearchprovidersby:
• developingacomprehensiveresearchstrategytosupporttheimplementationofthisstatement(thiswillincludeassessingthevalueoflongtermecologicalresearchsitesinsupportingbushfiremanagementacrossthelandscape);
• supportinggraduatedevelopmentandotherformsofspecialisedtraining;
• establishingaframeworkforintegratingresearchandmonitoringintothemanagementoffireatthebroaderlandscapelevel,andforimprovingandrefiningstrategiesasaresultofnewknowledge–adaptivemanagement;
• incorporatingcommunityvaluesandknowledgeintoplanningandactionthroughengagement,discussionsandsocialresearch;
• establishingeffectivemeansforbrokering/sharing/transferofnewandexistingknowledgeforfireandlandmanagers(thiswillbeincorporatedintotraining,planningandoperations).
MemberoftheBushfireCRCmultiagencyresearchtaskforceanalysingdestroyedpropertiesatKinglake,Victoria,oneweekaftertheFebruary2009BlackSaturdayfires(photo:BushfireCRC).
16 National Bushfire Management Policy Statement for Forests and Rangelands
ImplementationandReporting
Thisstatementidentifiesseveralkeyobjectivesandsupportinggoalsandstrategiesthathighlighttheimportantrolethatthemanagersandownersofforestsandrangelandshaveinreducingbushfirerisk.Itidentifieskeydriversthatareexacerbatingthesocial,economicandenvironmentalimpactsofbushfiresinAustralia,andoutlinesstrategiesthatwillmoveAustraliaclosertothevisionarticulatedhere,asdepictedinthediagrambelow.
Drivers
Awarmingclimatewithmoreextremeweatherandmorefrequentandintensedroughtsinthesouth.
Populationgrowthandsettlementpatternswithmorepeoplelivinginandnearbushland.
Communityvaluesincludinglandscapeamenity,primaryproduction,biodiversityconservation,wateryieldsandgreenhousegasemissions.
Increasingbushfiresuppressionandrecoverycosts,andpressuresonlandandfiremanagementandemergencyserviceagencies.
StrategicObjectivesandNationalGoals
A. Effectively Managing the Land with Fire
1. MaintainAppropriateFireRegimesinAustralia’sForestsandRangelands.
2. BalancetheEnvironmentalImpactsofFire.
3. PromoteIndigenousAustralians’UseofFire.
B. Involved and Capable Communities
4. CommunityEngagement.
5. PublicAwarenessandEducation.
C. Strong Land, Fire and Emergency Partnerships and Capability
6. IntegratedandCoordinatedDecisionMakingandManagement.
7. Employment,WorkforceEducationandTraining.
8. BushfireRiskMitigation.
9. BushfireResponse.
10. SafetyinFireOperations.
11. BushfireRecovery.
12. InternationalResponsibilities.
D. Actively and Adaptively Managing Risk
13. RiskManagement.
14. InvestinginandManagingKnowledge.
Vision
Fireregimesareeffectivelymanagedtomaintainandenhancetheprotectionofhumanlifeandproperty,andthehealth,biodiversity,tourism,recreationandproductionbenefitsderivedfromAustralia’sforestsandrangelands.
17
Allgovernmentshaveagreedtotakeresponsibilityforimplementingthisstatement.Severalofthepoliciescontainedwithinthisstatementcanbeimplementedimmediately;othersdependonfurtherwork.ReportsontheimplementationofprogresswillbepreparedbytheForestFireManagementGroup–acommitteeofgovernmentofficialsfromproductionandconservationforestmanagementagencies.
Governmentsagreethatthereportingmechanismwillbeconsistentwiththatadoptedforsimilarnationalpolicystatements.Implementationwillbeviatheannualbusinessplanningprocessesofrelevantagenciesfollowinganannualassessmentofpriorities,progressandtheavailabilityofresources.
AllAustralian,stateandterritorygovernmentswillcontinuetoworktowardspolicyprioritiesandsetthecooperativeandregulatoryframeworkforthemanagementoflandscapefireinordertoachievesocial,environmentalandeconomicobjectives.Governmentsarealreadyprovidingsignificantfundinginanumberoftheareasidentified.Thisstatementprimarilyaimstosupportthecollaborativeandefficientuseofavailableresources,andtosupporttheconsiderationoffutureinitiativesbyprovidingmorecommonstrategicintent,andaframeworkforsharingandvalidatinginformationtosupportbusinesscasedevelopmentandinvestment.
Plannedburningtominimisetheriskandimpactfromunplannedfires(photo:ParksVictoria).
18 National Bushfire Management Policy Statement for Forests and Rangelands
FirehasbeenpartofAustralia’senvironmentformillionsofyears.Manyofourlandscapesandecosystemshaveevolvedwithandbeenshapedbybothhistoricalandrecentpatternsoffire.Overtensofthousandsofyears,IndigenousAustraliansdevelopedasophisticatedunderstandingandpurposefuluseoffireformanaginglandandresources.Theirunderstandingoffireandfireregimesevolvedovermanyhundredsofgenerations.EarlyEuropeansettlersalsousedfireasamanagementtool.Traditionalknowledge,practicalexperienceandtheapplicationofsciencecanallcontributetoan4
4 ClimateofAustralia,BureauofMeteorology,2008,page157.
importantnationaljourneyoflearninghowtolivewithandtobettermanagelandscapefireinAustralia.
BecauseoftheclimaticvariationacrossAustralia,atanytimeoftheyearsomepartofthecontinentispronetobushfire,asillustratedbythemapbelow4.Inanaverageyear,bushfiresburnaround29millionhectares(about4percent)ofAustralia.Withseasonalfluctuations,however,thisareacanbehigherorlowerbyafactoroffour.Forexample,in1974and1975,115millionhectaresor15percentofAustraliawasburnt.
Appendix1:FireinAustralia
19
Aroundthreemillionhectaresor10percent,oftheareaburntannuallyislocatedinthesouthernregionsofAustralia,whicharetemperateandmoredenselypopulated.Intheseenvironments(especiallythesoutheast),occasionalbutseverebushfireshavesignificantsocial,economicandenvironmentalimpacts.SeveralmillionhectaresofsoutheasternAustraliawereburntbythe2002–03and2006–07fires.Thecatastrophic2009BlackSaturdayBushfirescausedthelossof173lives,thedestructionofover2000homes,majordisruptiontoindustry(e.g.agricultural,viticulturalandforestry,tourismandrecreation)andlossofessentialservices(e.g.transport,powersuppliesanddrinkablewater).
Theenvironmentalimpactswerealsoseriousandlonglasting,withseveralmillionhectaresofnativevegetationbeingseverelyburnt.Whilemostoftheseareaswilleventuallyrecover(subjecttofavourablefutureclimateandfireregimes),thelossofsoil,nutrients,habitat(andwildlife)willrenderthemlessproductiveandmorevulnerabletodroughtandseverefiresforsometime.Someofourmostproductiveandimportantwatercatchmentshavealsobeenaffected(forexamplethosesupplyingtheMelbourneandtheMurrayandGoulburnIrrigationareas),andthesewillproducelesswaterforcommunitiesandindustriesformorethan30years.
InnorthernAustralia,fewyearspasswithoutlargeareasbeingburnt.Around90percentoftheareaofAustraliaburntbyfireeachyearisfoundnorthoftheTropicofCapricorn,withburningoccurringduringthedryseason,generallybetweenAprilandNovember.Thesefiresusuallyhavearelativelyloweconomicimpactbecauseofthelowpopulationdensityandthedispersednatureofbuiltassets.Increasinglyhowever,wearegainingabetterunderstandingoftheeffectofthesefiresonbiodiversity,greenhousegasemissionsandcarbonbalances.InthegrazedrangelandsofnorthernAustralia,fireremainsbothathreattolivelihoodsandavaluabletoolformanagingpastures,weedsandlivestockandformaintaininglandcondition.
Itispossibletoassume,forgreenhousegasemissionaccountingpurposes,thatnetemissionsfrombushfiresovertimearezeroasburntvegetationgrowsback.Howeverinpracticeitislikelythatextremelyintensebushfiresthatburnlargefuelssuchaslogsontheforestfloorandburnmoredeeplyintosoilprofiles,generatelargepulsesofemissions.Thesepulsessubstantiallyexceedthecarbonsequesteredbygrowingvegetationinmoremoderatelydisturbedenvironmentssubjecttomorefrequentplannedburning5.
5 CSIROestimatesforthe2006–07Victorianfireswerethatgreenhousegasemissionsfromthefiresexceededthoseofthestate’spowerstations,industriesandcarsbyabout30percentoverthesameperiod.www.heraldsun.com.au/archives/old-news-pages/bushfires-colossal-effect/story-e6frf7rx-1111112820872.
ColumnsofsmokefromburningoperationsnearMittagong,NSW,duringtheDecember2001BlackChristmasfires(photo:StephenWilkes,ACTParksandConservationService).
20 National Bushfire Management Policy Statement for Forests and Rangelands
Overall,theroleofplannedfireinreducingtheriskofseverebushfiresandmaintainingthehealthandproductivityofbothpublicandprivatelandsispositive.
However,thecumulativeimpactsofmultiplefires(fireregimes)canpromoteordegradeecosystemhealth.Toofrequentfireovertoowideanareacandramaticallyalterthecompositionandstructureofnaturalecosystems.Firethatistooinfrequentcanpredisposethelandscapetolargerandmoreseverefiresbypromotingtheaccumulationofunnaturallyhighfuelloads.Livingwithfirerequiresustogetthebalancerightforcurrentandfuturegenerations.
‘Plannedfiresarefundamentaltothisstrategy.’
Australiaplaysasignificantrolewithintheinternationalbushfiremanagementcommunity.Ourachievementsinfireresearch,bushfiremitigationandmanagement,andcommunityinvolvement,areincreasinglyinfluencingapproachestobushfiremanagementworldwide.Aclearvisionandpolicy,aimedatimprovingthemanagementoffirebylandandbushfiremanagementagenciesandcommunities,willconsolidatethisinternationalcontribution.
Since2000,southernAustraliahasexperiencedfireseasonsasdevastatingasanyinthetwohundredyearssinceEuropeansettlement.Thebestavailablesciencenowsuggeststhatawarming,dryingclimate,particularlyinsouthernAustralia,willincreasethefrequency,intensityandsizeofbushfiresinsomeofthemostdenselypopulatedregionsofthecontinent.TheweatherconditionswhichpredisposedVictoriatocatastrophicfiredangerinFebruary2009,andtheconsequenttragiclossoflifeandproperty,arepredictedbytheCSIROandBureauofMeteorologytooccurmorefrequentlyinfuture6.
ItisestimatedthatoverthelastcenturytheareasubjecttofireinAustraliahasdeclined.Thisisbecauseofchangedlanduseandmanagement,improvedbushfiresuppressionpractices,thereductionoftraditionalburningbyIndigenouscommunities,andareductionofplannedburningbylandmanagers.Thesechangeshaveinpartresultedinfrequent,smallandlowintensityfiresbeingreplacedbylessfrequent,largerandmoreintensefires.Thishasresultedinareductioninthe“patchiness”ormosaicsacrossthelandscapewhichisimplicatedinthelossofbiodiversity.The“woodythickening”insubstantialareasofthenorthernAustraliaprovidesanotableexampleofchangedlandmanagementandfireregimeschangingbushfireriskandecologicaloutcomes.
MuchofAustraliacannot,andshouldnot,be“fire-proofed”.Rather,weneedtolearntolivewithfireandtomanageitwithinthelandscape,recognisingthatfireisinevitableandthatmanynativeecosystemsareadaptedtoandneedfire.Plannedfiresarefundamentaltothisstrategy.Theyareusuallysmaller,lessintenseandpatchierthanmajorbushfires.Whiletheydoinvolvecostsandimpacts(e.g.temporarylossofhabitat,productionofsmoke)theyarefarlessseverethanthoseofmajorbushfires.
6 Theinterannualvariabilityofmanybiophysicalparameters(includingrainfall)insoutheasternAustraliaisinfluencedbythepositionofthesubtropicalridge,whichresearchintheSouthEasternAustralianClimateInitiative(SEACI)suggestsisassociatedwithabout70percentoftheobservedautumnrainfalldeclineinsoutheasternAustralia(CSIRO2009).Climatemodelspredictanintensificationandsouthwardsshiftinthesubtropicalridge,causingtherainbringingfrontalsystemsfromthewesttomovefurthersouth,andexacerbatingthefrequency,intensityanddurationofdroughtconditionsinsoutheasternAustralia.(CSIRO(2009)“AdviceondefiningclimatescenariosforuseintheMurrayDarlingBasinAuthorityBasinPlanmodelling.”MDBATechnicalReportSeries:BasinPlan:BP01CSIROandMurrayDarlingBasinAuthority,Canberra.)
PlannedfireincoastalforestsusingaerialincendiaryoperationsinSouthAustralia,2001(photo:ChantelleO’Brien,DepartmentofEnvironment,WaterandNaturalResources,SouthAustralia).
21
Glossary
CommandThedirectionofmembersandresourcesofanagencyintheperformanceoftheagency’sroleandtasks.Authoritytocommandisestablishedinlegislationorbyagreementwithinanagency.Commandrelatestoagenciesandoperatesverticallywithinanagency.
DroughtProlongedabsenceormarkeddeficiencyofprecipitation(rain).(BOM)
Ecosystem servicesThefunctioningofnaturalecosystemsprovidesservicesessentialtohumansurvivalandwell-being.Naturalecosystemsmaintaintheatmosphere;providecleanwater;controlsoilerosion,pollutionandpests;pollinateplants;andprovidemanyotheressentialprocesses.Thelanguageofecosystemserviceshasemergedinrecentdecadesasawayofrepresentingthesignificanceofthebenefitshumansderivefromnaturalsystems7.
FireThechemicalreactionbetweenfuel,oxygenandheat.Heatisnecessarytostartthereactionandonceignited,fireproducesitsownheatandbecomesself-supporting.
Fire behaviourThemannerinwhichafirereactstothevariablesoffuel,weatherandtopography.
Fire behaviour predictionPredictionofprobablefirebehaviourusuallypreparedbyafirebehaviouranalystinsupportoffiresuppressionorprescribedburningoperations.(NWCG)
Fire climateThecompositepatternorintegrationovertimeofthefireweatherelementsthataffectfireoccurrenceandfirebehaviourinagivenarea.
7 NaturalResourceManagementMinisterialCouncil(2010).Australia’sBiodiversityConservationStrategy2010–2030,AustralianGovernmentDepartmentofSustainability,Environment,Water,PopulationandCommunities,Canberra.
MostofthetermsinthisGlossaryarefromKnowledgeWeb,asitemaintainedbytheAustralasianFireandEmergencyServiceAuthoritiesCouncil.
KnowledgeWebcanbefoundathttps://knowledgeweb.afac.com.au/services/glossary.
AssetsAnythingvaluedbypeoplewhichincludeshouses,crops,forestsand,inmanycases,theenvironment.
Available resourcesTheresourcesatanincidentandavailableforallocationatshortnotice.(AIIMS)
BushfireUnplannedvegetationfire.Agenerictermwhichincludesgrassfires,forestfiresandscrubfiresbothwithandwithoutasuppressionobjective.
Bushfire managementAllthoseactivitiesdirectedtoprevention,detection,damagemitigation,andsuppressionofbushfires.Includesbushfirelegislation,policy,administration,lawenforcement,communityeducation,trainingoffirefighters,planning,communicationssystems,equipment,research,andthemultitudeoffieldoperationsundertakenbylandmanagersandemergencyservicespersonnelrelatingtobushfirecontrol.
Bushfire riskProcesses,occurrencesoractionsthatincreasethelikelihoodofbushfiresoccurring.
Bushfire suppressionTheactivitiesconnectedwithrestrictingthespreadofabushfirefollowingitsdetectionandbeforemakingitsafe.
ClimateTheatmosphericconditionsofaplaceoveranextendedperiodoftime.
Code of PracticeDocumentgivingmethodsdevelopedtoassistcompliancewithactsandregulationsintheperformanceofwork.
22 National Bushfire Management Policy Statement for Forests and Rangelands
Fire dangerSumofconstantdangerandvariabledangerfactorsaffectingtheinception,spread,andresistancetocontrol,andsubsequentfiredamage;oftenexpressedasanindex.(NWCG)
Fire ecologyThestudyoftherelationshipsbetweenfire,thephysicalenvironmentandlivingorganisms.
FirefighterAnyemployee,volunteeroragentofanyfireagencywhooccupies,orisdesignated,toundertakearoleforthepurposeoffiresuppression.
Fire managementAllactivitiesassociatedwiththemanagementoffireproneland,includingtheuseoffiretomeetlandmanagementgoalsandobjectives.
Fire regimeThehistoryoffireinaparticularvegetationtypeorareaincludingthefrequency,intensityandseasonofburning.Itmayalsoincludeproposalsfortheuseoffireinagivenarea.(AFAC)
Fire seasonTheperiodduringwhichbushfiresarelikelytooccur,spreadanddosufficientdamagetowarrantorganisedfirecontrol.
Fire weatherWeatherconditionswhichinfluencefireignition,behaviour,andsuppression.(NWCG)
ForestAnarea,incorporatingalllivingandnon-livingcomponents,thatisdominatedbytreeshavingusuallyasinglestemandamatureorpotentiallymaturestandheightexceeding2metresandwithexistingorpotentialcrowncoverofoverstoreystrataaboutequaltoorgreaterthan20percent.ThisdefinitionincludesAustralia’sdiversenativeforests,woodlandsandplantations,regardlessofage.
Forest fireAfireburningmainlyinforestand/orwoodland.
FuelAnymaterialsuchasgrass,leaflitterandlivevegetationwhichcanbeignitedandsustainsafire.Fuelisusuallymeasuredintonnesperhectare.RelatedTerms:Availablefuel,Coarsefuel,Deadfuel,Elevateddeadfuel,Finefuel,Ladderfuel,Surfacefuel,Totalfinefuel.
Fuel reductionManipulation,includingcombustion,orremovaloffuelstoreducethelikelihoodofignitionand/ortolessenpotentialdamageandresistancetocontrol.
HabitatThelocalenvironmentofconditionsinwhichananimalorplantlives.
HazardAsourceofpotentialharmorasituationwithpotentialtocauseloss.
UtilisinginternaldrawandconvectioncurrentsinaplannedfireinSouthAustralia,in2011(photo:ChantelleO’Brien,DepartmentofEnvironment,WaterandNaturalResources,SouthAustralia).
23
IgnitionThebeginningofflameproductionorsmoulderingcombustion;thestartingofafire.
IncidentAnyunplannedeventrequiringemergencyintervention.(AIIMS)
MosaicUsedinreferencetothespatialarrangementofburntandunburntfuelsateitheralocaloralandscapescale.
OperationsThedirection,supervisionandimplementationoftacticsinaccordancewiththeIncidentActionPlan.
Planned burningSee:Prescribedburning.
PreparednessAllactivitiesundertakeninadvanceoftheoccurrenceofanincidenttodecreasetheimpact,extentandseverityoftheincidentandtoensuremoreeffectiveresponseactivities.
Prescribed burningThecontrolledapplicationoffireunderspecifiedenvironmentalconditionstoapredeterminedareaandatthetime,intensity,andrateofspreadrequiredtoattainplannedresourcemanagementobjectives.
PreventionAllactivitiesconcernedwithminimisingtheoccurrenceofincidents,particularlythoseofhumanorigin.
Rangelands
Therangelands,popularlyknownas“theoutback”,coverapproximately81percentofAustralia’slandarea.Theyencompass:
• tropicalwoodlandsandsavannasinthefarnorth
• vasttreelessgrassyplains(downscountry)acrossthemidnorth
• hummockgrasslands(Spinifex),mulgawoodlandsandshrublandsthroughthemidlatitudes
• saltbushandbluebushshrublandsthatfringetheagriculturalareasandGreatAustralianBightinthesouth8.
RecoveryThecoordinatedprocessofsupportingemergencyaffectedcommunitiesinreconstructionofthephysicalinfrastructureandrestorationofemotional,social,economicandphysicalwellbeing.
ResourcesAllpersonnelandequipmentavailable,orpotentiallyavailable,forincidenttasks.
ResponseActionstakeninanticipationof,during,andimmediatelyafteranincidenttoensurethatitseffectsareminimised,andthatpeopleaffectedaregivenimmediatereliefandsupport.
RiskTheexposuretothepossibilityofsuchthingsaseconomicorfinanciallossorgain,physicaldamage,injuryordelay,asaconsequenceofpursuingaparticularcourseofaction.Theconceptofriskhastwoelements,i.e.thelikelihoodofsomethinghappeningandtheconsequencesifithappens.(AS4360)
8 NaturalResourceManagementMinisterialCouncil(2010).PrinciplesforSustainableResourceManagementintheRangelands.AustralianGovernmentDepartmentoftheEnvironment,Water,HeritageandtheArts,Canberra.
2011fuelreductionburnatRedTapeCreek,Tas,usingaerialincendiaries(photo:PaulBlack,Parks&WildlifeService,Tasmania).
24 National Bushfire Management Policy Statement for Forests and Rangelands
RuralAnyareawhereinresidencesandotherdevelopmentsarescatteredandintermingledwithforest,range,orfarmlandandnativevegetationorcultivatedcrops.
UrbanAreainwhichresidencesandotherhumandevelopmentsformanessentiallycontiguouscoveringofthelandscape,includesmostareawithincities&towns,subdivisions,commercialandindustrialparks,andsimilardevelopmentwhetherinsidecitylimitsornot.
Urban rural interface (URI)Theline,area,orzonewherestructuresandotherhumandevelopmentadjoinoroverlapwithundevelopedbushland.
WoodlandAsubsetofforestplantcommunitiesinwhichthetreesformonlyanopencanopy(between20percentand50percentcrowncover),theinterveningareabeingoccupiedbylowervegetation,usuallygrassorscrub.
HouseatStrathewen,Victoria,thatwassuccessfullydefendedintheFebruary2009BlackSaturdayfires(photo:BushfireCRC).