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).