~ Government of Western Australia -W_ Department of Fire & Emergency Services

Our Ref: 18/053522 Your Ref: A669140

Mr PA Katsambanis, MLA Chairman Community Development and Justice Standing Committee Parliament House 4 Harvest Terrace WEST PERTH WA 6005

Dear Mr Katsambanis MLA

~ DFES

Thank you for your letter of 13 February 2018 inviting the Department of Fire and Emergency Services (DFES) to make a written submission into the protection of crowded places in Western Australia from terrorist acts.

STATE-BASED EMERGENCY MANAGEMENT FRAMEWORK

The Emergency Management Act 2005 (the Act), in conjunction with the Emergency Management Regulations 2006 (the Regulations), prescribes the Commissioner of Pol ice as the Hazard Management Agency (HMA) for a terrorist act within Western Australia (as defined in The Criminal Code section 100.1 set out in the Schedule to the Criminal Code Act 1995 of the Commonwealth).

A HMA is to be a public authority or other person who or which, because of that agency's functions under any written law or specialised knowledge, expertise and resources, is responsible for emergency management, or the prescribed emergency management aspect, in the area prescribed of the hazard for which it is prescribed.

Under the Act, the HMA (Commissioner of Police) has developed Westplan - Terrorist Act.

The Act also provides for a public authority, or other person, to be prescribed by the regulations to be a combat agency for the purposes of this Act.

A combat agency i~ because of the agency's functions under any written law or specialised knowledge, expertise and resources, is responsible for performing an emergency management activity prescribed by the regulations in relation to that agency.

The Regulations do not prescribe the DFES as a combat agency with responsibility for any emergency management activity.

However, Westplan - Terrorist Act, states DFES roles and responsibil ities are to provide fire response, collapse response, HAZMAT response, chemical detection capability and specialist advice on issues relating to hazardous materials including chemicals, airborne contaminants and decontamination requirements.

Emergency Services Complex I 20 Stockton Bend Cockburn Central WA 6164 I PO Box P117 4 Perth WA 6844 Tel (08) 9395 9300 I Fax (08) 9395 9384 I dfes@dfes.wa.gov.au I www.dfes.wa.gov.au

ABN 39 563 851 304

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Providing support to Westplan - Terrorist Act, is Westplan - Chemical, Biological, Radiological (CBR) agents or Nuclear devices (further abbreviated to CBRN) within Western Australia, which aims to detail the consequence management arrangements and the interface with Western Australia Police (WA Police) law enforcement requirements for emergencies associated with CBRN.

Westplan - CBRN applies throughout Western Australia for the emergency management of the following CBRN hazards:

• Chemical warfare agents (CWA);

• Toxic industrial chemicals (TIC);

• Radioactive materials;

• Suspicious chemicals or bio-agents; and

• Nuclear devices.

Westplan CBRN does not include law enforcement functions of the WA Police as may be required during a CBRN emergency.

As the HMA for any actual or impending spillage, release or escape of a chemical, radiological or other substance that is capable of causing loss of life, injury to a person or damage to the health of a person, property or the environment within Western Australia, the Fire and Emergency Services Commissioner (FES Commissioner) has accepted responsibility for the maintenance and review of Westplan - CBRN. It undertakes this role through the CBRN Committee.

The CBRN Committee ensures issues related to consequence management associated with all CBRN hazards are covered by the State.

The CBRN Committee is a committee established by DFES and comprises of officers from:

• Department of Fire and Emergency Services (Chair);

• Australian Defence Force;

• Australian Federal Police;

• ChemCentre WA (CCWA);

• Department of Primary Industries and Regional Development - Agriculture and Food;

• Department of Water and Environment Regulation;

• Department of Health (DoH);

• St John Ambulance Australia (SJA);

• Western Australia Police;

• The Western Australian Centre for Pathology and Medical Research; and

• Water Corporation.

The functions of the CBRN Committee are to:

• Oversee maintenance and continuous improvement of Western Australia's CBRN capability;

• Assist with the preparation, testing and maintenance of emergency management plans covering CBRN hazards;

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• Maintain links with Australian Government agencies as required;

• Provide technical and emergency management advice as requi red;

• Monitor developments associated with CBRN nationally and internationally; and

• Make recommendations, as appropriate, to improve the preparedness of the State to respond to CBRN emergencies.

PREPAREDNESS TO RESPOND TO A CBRN EMERGENCY

Westplan - CBRN

The FES Commissioner is responsible for emergency preparedness for potential CBRN events in Western Australia covering those hazards identified above. It is the role of the CBRN Committee to provide a co-operative, working arrangement between all agencies to ensure preparedness covering all CBRN hazards, and that all linkages with Police law enforcement are in place.

Planning Contingencies. The range of possible contingencies for which planning arrangements are required include:

• Threat I Hoax. Events where the threat level based on the assessed risk may rise from:

o No risk (threat assessed as not credible);

o A potential risk (threat assessed as credible and requires further investigation); or

o A risk assessed to be real.

• National Threat Assessment. Notification of an elevated threat.

• Covert Events.

• Overt Events.

Intelligence Sharing Arrangements. To ensure continued preparedness, a secure intelligence sharing capability will be maintained between the appropriate Austra lian Government agencies, WA Police, DFES and DoH.

Westplan - CBRN provides for the establishment of the Chemical, Biological , Radiological and Nuclear Technical Group (CBRNTG).

Its role is to provide technical and emergency management advice to the DFES I Police Incident Management Team (IMT) involved in the on-site emergency response.

The CBRNTG is available on call 24 hours a day, 7 days a week.

DFES maintains an operational response capability as follows:

• Dedicated mass decontamination resources. DFES has allocated two fire stations in the Metropolitan region to maintain and operate the mobile

mass decontamination and rescue equipment provided by the Australian Government. This resource is currently under review for more contemporary methods.

• Detection equipment on loan. DFES has atmospheric monitoring and detection equipment at the CCWA for use by the CCWA, on the basis of a MOU between DFES and the CCW A. CCWA maintains the expertise and technical knowledge to analyse and interpret data from the equipment.

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• Sampling Equipment on Loan. The CCWA has provided DFES with gas sampling canisters to be placed on the CBRN I HAZMAT Response appliances. The canisters will be used to obtain air samples within the 'Hot Zone' as part of the initial response.

• Training. DFES manages a statewide-integrated training program (Police, DoH, SJA and CCWA) to ensure Westplan - CBRN operates successfully. This includes:

o Management of CBRN Incidents. Training of personnel from all agencies who may have an incident management role during a CBRN emergency.

o Breathing Apparatus (BA) and Protective Equipment. Training of all agency personnel to become competent in the use of BA and protective equipment appropriate to their roles and responsibilities contained in Westplan - CBRN.

o Detection Equipment. Training of DFES personnel in the operation, maintenance, and interpretation of dedicated detection equipment.

PREPAREDNESS TO RESPOND TO TERRORIST ACTS, PARTICULARLY IN REGIONAL AREAS

DFES has published the Western Australian Fire and Emergency Services Manual (WAFESM) to detail the emergency Command, Control and Coordination arrangements for emergencies involving the various hazards for which the FES Commissioner is the HMA or has a supporting role, throughout Western Australia. The manual provides detailed instruction and guidance on the various individual and collective responsibilities of the agency and individuals - from IMTs, to the staff of the DFES State Operations Centre and DFES Regional Operations Centres.

The WAFESM is underpinned by the DFES Strategic Control Priorities, these include:

• Protection and Preservation of Life;

• Issuing Community Information and Warnings;

• Protection of Critical Infrastructure and Community Assets;

• Protection of Residential Property;

• Protection of Assets Supporting Individual Livelihood and Community Financial Sustainability; and

• Protection of Environmental and Heritage Values.

Much of the daily routine of DFES Operations crews and officers is dedicated to preparedness - to being assured that when response is required, the crew is ready for the task. Of particular note are the following:

• Dispatch procedures;

• Daily and routine equipment maintenance;

• Procedural development and review;

• Training;

• Staffing;

• Risk Assessment and Pre-Planning; and

• Infrastructure maintenance.

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DFES has a strong and current operational doctrine that meets the needs of both organisational governance and operational guidance. DFES Operations doctrine provides the conduit between Organisational Direction (governance) and Operational Guidance (performance standards) at the incident. Doctrine is critical to empowering our personnel and reinforces the value of training. The key elements of DFES Operations doctrine are as follows:

• Operational Directives. Operational Directives draw from DFES policy, Westplan and training publications to provide detailed procedural guidance to all aspects of the operations portfolio.

• Standard Operating Procedures {SOP). SOP draw from and reference Operational Directives and training publications to provide checklists of performance standards capable of use at incidents in the field .

• Standard Administrative Procedures {SAP). SAP provides guidance to the achievement of administrative processes that enable operational outcomes by allocating responsibilities and processes to key appointments.

• DFES Training Publications. Although DFES training publ ications are not strictly documents of the Operations portfolio, they complete the knowledge suite by detai ling the performance standards for individual skills and remain integral to standardising safe performance in the workplace.

To date, DFES capabilities including doctrine do not specifically address terrorist acts. Rather, our focus has been on capability development in anticipation of, during, and immediately after an emergency for which the FES Commissioner has legislated responsibilities i.e. - fire, rescue, hazardous materials, collapse and natural hazards.

However, the following list of SOPs has been developed to support WA Police (or other law enforcement agency):

• Active Shooter;

• Civil Disturbances;

• Bomb Threats; and

• Clandestine Drug Laboratories.

When attending incidents of this type, DFES personnel will follow WA Police direction and shall not get involved in law enforcement activity. In such circumstances DFES will remain under the direct supervision of DFES and use DFES procedures. Such assistance may include the following:

• Providing equipment;

• Providing specialist resources such as Urban Search and Rescue Team, Field Liaison Chemist and Pollution Response Unit;

• Providing advice on the management of any fire suppression or alarm systems that may be present;

• Providing Operational Preplans and Fire and Emergency Services Emergency Response Guides;

• Providing building keys;

• Assistance with casualty care; and

• Assistance with evacuations and exclusions

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RELATIONSHIPS BETWEEN STATE GOVERNMENT DEPARTMENTS AND AGENCIES AND OWNERS AND OPERATORS OF CROWDED PLACES

DFES has developed a Standard Administrative Procedure (SAP) "Mass Gatherings and Special Events Assessment Guide". This guide provides a standard method of assessment to determine DFES emergency management strategies for planned major events e.g. Operational Preplans, involvement in risk management planning at local government and event organiser level and the provision of on-site and/or standby resources.

However, they can present emergency risks outside the norm and may require additional planning, preparedness, and mitigation efforts of local government and public safety agencies.

The guide is used to provide a standard method of assessment and is not to replace sound decision making by the DFES Officer/Incident Controller.

In addition to the guide, DFES State Operations Centre (SOC) undertakes analysis of information and data to identify emerging risks and potential and required courses of action in order to build and maintain high level and timely weight of response to statewide emergencies.

The WAFESM details a State Risk and Readiness Cycle and calls upon the completion of:

Regional Forecast Risk and Readiness Assessment (FRRA). The Regional FRRA is completed both pre-emptively and reactively. The Regional FRRA considers regional level risks emerging from hazards and potential risks identified at regional level in conjunction with analysis of information obtained through key stakeholders, information and data sources.

Regional Heightened Risk and Readiness Actions (HRRA). The Regional HRRA is pre­emptively completed once the state risk level has been set to Moderate, Major or Catastrophic within the Regional FRRA. The Regional HRRA prescribes set actions required at each risk level based upon hazard types and potential risks. The Regional HRRA and resultant actions inform and augment into the Regional Operations Planning. The FRRA and HRRA work in unison identifying and treating emerging risks with appropriate preparatory actions.

Regional Operational Planning. Regional Operations Planning considers the actions identified with in the Regional HRRA and describes the activation of key resources, actions and assets prescribed within the HRRA. The role of the Regional Operations Planning is to provide a pathway for responding to a risk that emerges in accordance with the preparation undertaken within the Regional FRRA and HRRA.

Planned major events (crowded places) should feature in the FRRA and HRRA, however depending on where it is to be held and the size it may/may not earn a mention at the State Operational Preparedness Briefing (OPB) which occurs every Monday and Thursday or more frequently if required. The purpose of the OPB is to ensure that situational awareness and risk awareness are common between the SOC and Regional Operations Centres and actions are identified and implemented to address potential or emerging risks.

Additionally, a DFES Officer provides daily situational awareness through the Commissioner's Daily Report (CDR) whereupon events that constitute an event-based crowd are routinely identified and highlighted. DFES provides a Weekly Intelligence Brief (WIB), the purpose of which is to report on the risk posed to the Western Australian community by hazards for which DFES is the HMA.

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Through the WIB, DFES notes by exception the interaction between DFES HMA hazards and the event (where there are none there is no assessment deduced). DFES provides a state rostered intelligence capability which can be tasked to look specifically into an event to focus planning and decision-making in terms of a Commanders Intelligence Requirement.

Under the Emergency Management Act 2005, local governments are required to have local emergency management arrangements (LEMA). Each local government is required to establish, administer and maintain a Local Emergency Management Committee (LEMC). Agenda items to be considered include but not restricted to:

• status of LEMA including local recovery plans; and

• emergency risk management processes - including any treatment strategies.

When planned major events do occur, event organisers in conjunction with the local governments (and LEMC's) develop plans, consider emerging risks and treatment options. DFES attendance at these meetings would provide input predominantly from a legislated perspective and traffic management.

FLOW OF INFORMATION AND INTEROPERABILITY BETWEEN DFES AND WA POLICE

The FES Commissioner is responsible for controlling the response to a wide range of emergencies including fires, hazardous materials, cyclones, storms and floods.

The Commissioner of Police holds the office of the State Emergency Coordinator. A structure exists to facilitate coordination of emergencies. Coordination is the bringing together of organisations and elements to assist the HMA and ensure an effective response appropriate to the hazard.

Given the State's Emergency Management Arrangements as detailed in legislation and the State Emergency Management Plan, the flow of information and interoperability between DFES and WA Police for hazards other than terrorism is well practiced and effective at all levels.

Acknowledging that we now live in a changing security environment, in November 2017, DFES and WA Police senior officers engaged to discuss and review DFES involvement in counter­terrorism arrangements in Western Australia.

This initial meeting lead to a second meeting in February 2018, involving staff of both agencies to further discuss operational collaboration, DFES capability, safety, doctrine, security clearances and exercising. A key outcome was that DFES and WA Police would develop a series of discussion exercises with a focus on crowded places.

DFES' recently developed and implemented Intelligence capability provides for interagency intelligence opportunities between DFES and WA Police, specifically in the counter terrorism space. Further meetings are scheduled to progress and discuss this initiative and training opportunities.

CAPABILITY OF THE WESTERN AUSTRALIA POLICE FORCE TO RESPOND TO A TERRORIST ATTACK AT A CROWDED PLACE

The WA Police Counter Terrorism and Emergency Response Capability Managers Forum was held on 23 March 2018. DFES were invited to provide a presentation on its capabilities to respond to a terrorist attack at a crowded place. DFES reported on its CBRN, Urban Search and Rescue (USAR) and fire services. Importantly, during the WA Police capability reports,

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DFES was able to identify opportunities to assist WA Police's timeliness and effectiveness of response, specifically in decontamination of evidence, USAR and public information.

INVOLVEMENT WITH THE WA POLICE CROWDED PLACES FORUM/S.

Since 2014, DFES Special Operations Response has been involved with the WA Police Force Critical Infrastructure Unit. At that time this unit provided situational awareness and intelligence regarding Critical Infrastructure and Places of Mass Gathering. DFES Special Operations Response staff is part of the email distribution list from the Protective Security Unit (PSU) which provides regular security vulnerability or suspicious activity updates. Through this distribution list, DFES Special Operations Response also receives newsletters published by the unit on a regular basis and forum invites. In June of 2017, the PSU added its Twitter account as another option for updates.

In August of 2017, the PSU circulated the ANZCTC Australia's Strategy for Protecting Crowded Places from Terrorism, and the forum was renamed as the Crowded Places Security Group.

Forum/s and Events Attended By DFES:

• A forum facilitated by WA Police on 22 January 2016.

• LNG 18 security and transport discussion exercise which was facilitated by the PSU.

• Security and Safety Workshop at the Perth Convention and Exhibition Centre on Wednesday 26 October 2016.

• A forum facilitated by WA Police on 21February2018. This forum had 130 people attend from private and government sectors that operate or own or manage crowded places.

I hope the information contained in this letter is useful to you. If you require further information about DFES capability with respect to protection of crowded places in Western Australia from terrorist acts please contact Assistant Commissioner Operations Capability Gary Gifford on

Yours sincerely

DARREN KLEMM AFSM COMMISSIONER

29 March 2018

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