BUSHFIRE RISK MANAGEMENT PLAN - CITY OF ROCKINGHAM 2018-2022
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BUSHFIRE RISK
MANAGEMENT PLAN
2018-2022
CITY OF ROCKINGHAM
Office of Bushfire Risk Management (OBRM) reviewed 29 June 2018
Local Government Council endorsement 25 September 2018
Contents
1. Introduction .................................................................................................................................... 5
1.1 Background ............................................................................................................................. 5
1.2 Aim and Objectives ................................................................................................................. 5
1.3 Legislation, Policy and Standards ............................................................................................ 5
1.3.1 Legislation ....................................................................................................................... 5
1.3.2 Policies, Guidelines and Standards ................................................................................. 6
1.3.3 Other Related Documents .............................................................................................. 6
2. The Risk Management Process ....................................................................................................... 7
2.1 Roles and Responsibilities ....................................................................................................... 8
2.2 Communication & Consultation .............................................................................................. 9
3. Establishing the Context ............................................................................................................... 10
3.1 Description of the Local Government and Community Context........................................... 10
3.1.1 Strategic and Corporate Framework............................................................................. 10
3.1.2 Location, Boundaries and Tenure ................................................................................. 10
3.1.3 Population and Demographics ...................................................................................... 11
3.1.4 Economic Activities and Industry .................................................................................. 13
3.2 Description of the Environment and Bushfire Context ......................................................... 15
3.2.1 Topography and Landscape Features ........................................................................... 15
3.2.2 Climate and Bushfire Season ........................................................................................ 17
3.2.3 Vegetation Classifications and Bushfire Prone Vegetation........................................... 18
3.2.4 Bushfire Frequency and Causes of Ignition ................................................................... 19
4. Asset Identification and Risk Assessment ..................................................................................... 22
4.1 Planning Areas ...................................................................................................................... 22
4.2 Asset Identification ............................................................................................................... 22
4.3 Assessment of Bushfire Risk ................................................................................................. 23
4.3.1 Likelihood Assessment .................................................................................................. 23
4.3.2 Consequence Assessment ............................................................................................. 24
4.3.3 Assessment of Environmental Assets ........................................................................... 26
4.3.4 Local Government Asset Risk Summary........................................................................ 26
5. Risk Evaluation .............................................................................................................................. 27
5.1 Evaluating Bushfire risk ......................................................................................................... 27
5.2 Treatment Priorities .............................................................................................................. 27
5.3 Risk Acceptability .................................................................................................................. 27
6. Risk Treatment .............................................................................................................................. 29
6.1 Local Government-Wide Controls......................................................................................... 29
City of Rockingham Bushfire Risk Management Plan 2018-2022 2
6.2 Asset-Specific Treatment Strategies ..................................................................................... 30
6.3 Determining the Treatment Schedule .................................................................................. 30
7. Monitoring and Review ................................................................................................................. 32
7.1 Review ................................................................................................................................... 32
7.2 Monitoring ............................................................................................................................ 32
7.3 Reporting............................................................................................................................... 32
8. Glossary ......................................................................................................................................... 33
9. Common Abbreviations ................................................................................................................ 37
Appendices ............................................................................................................................................ 38
1 Drawings ................................................................................................................................... 39
2 Communication Strategy .......................................................................................................... 44
Development of the BRM Plan ............................................................................................................ 49
Implementation of the BRM Plan ........................................................................................................ 50
Review of the BRM Plan....................................................................................................................... 51
3 Local Government-Wide Controls, Multi-Agency Treatment Work Plan ................................. 52
4 References ................................................................................................................................ 56
City of Rockingham Bushfire Risk Management Plan 2018-2022 3
Document Control
Document Name Bushfire Risk Current Version 1.0
Management Plan
Document Owner City of Rockingham CEO Issue Date DD/MM/YYYY
Document Location LUP/1975 Next Review Date DD/MM/YYYY
Document Endorsements
The City of Rockingham Council endorses that the Bushfire Risk Management Plan (BRM Plan) has
been reviewed and assessed by the Office of Bushfire Risk Management as compliant with the
standard for bushfire risk management planning in Western Australia, the Guidelines for Preparing a
Bushfire Risk Management Plan. The City of Rockingham is the owner of this document and has
responsibility, as far as is reasonable, to manage the implementation of the BRM Plan and facilitate
the implementation of bushfire risk management treatments by risk owners. The endorsement of the
BRM Plan by the City of Rockingham council satisfies their endorsement obligations under section
2.3.1 of the State Hazard Plan for Fire (Westplan Fire).
Local Government Representative Signature Date
Amendment List
Version Date Author Section
1.0 April 2018 GD
Publication Information
Wherever a third party holds copyright in material presented in this publication, the copyright remains
with that party. Their permission may be required to use the material.
This document contains Standards Australia Ltd and ISO copyrighted material that is distributed by SAI
Global on Standards Australia Ltd and ISO’s behalf. It may be reproduced in accordance with the terms
of SAI Global Ltd.’s Licence 1411-c083 to the Commonwealth of Australia (“the Licensee”). All licensed
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material is not for resale, reproduction or distribution in whole or in part without written permission
from SAI Global Ltd: tel + 61 2 8206 6355 or copyright@saiglobal.com.
City of Rockingham Bushfire Risk Management Plan 2018-2022 4
1. Introduction
1.1 Background
The State Emergency Management Plan for Fire (Westplan Fire) requires an integrated Bushfire Risk
Management Plan (BRM Plan) be developed for each local government outlining a strategy to treat
bushfire related risk across all land tenures. This BRM Plan has been prepared for the City of
Rockingham in accordance with the requirements of Westplan Fire and the Bushfire Risk Management
Planning – Guidelines for preparing a Bushfire Risk Management Plan (BRM Plan Guidelines). The risk
management processes used to develop this plan are generally consistent with the key principles of
AS/NZA ISO 31000:2009 Risk Management – Principle and guidelines (ISO 31000:2009), as described
in the Second Edition of the National Emergency Risk Assessment Guidelines (NERAG 2014). Such an
approach is consistent with the policies of the State Emergency Management Committee, specifically
State Emergency Management Policy 3.2– Emergency Risk Management Planning.
The BRM Plan is a strategic document that identifies assets at risk from bushfire and their priority for
treatment. The Treatment Schedule sets out a broad program of coordinated multi-agency treatments
to address risks identified in the BRM Plan. Government agencies and other land managers with
responsibility for implementing treatments will participate in the BRM Plan process to ensure
treatment strategies are collaborative and efficient; regardless of land tenure.
1.2 Aim and Objectives
The aim of the BRM Plan is to document a coordinated and efficient approach towards the
identification, assessment and treatment of assets exposed to bushfire-related risk within the City of
Rockingham.
The objective of the BRM Plan is to effectively manage bushfire risk within the City of Rockingham in
order to protect people, assets and other things of local value. Specifically, the objectives of this BRM
Plan are to:
• Guide and coordinate a tenure blind, multi-agency bushfire risk management program
over a five year period;
• Document the process used to identify, analyse and evaluate risk, determine priorities
and develop a plan to systematically treat risk;
• Facilitate the effective use of the financial and physical resources available for bushfire
risk management activities;
• Integrate bushfire risk management into the business processes of local government, land
owners and other agencies;
• Ensure there is integration between land owners and bushfire risk management programs
and activities;
• Monitor and review the implementation of treatments to ensure treatment plans are
adaptable and risk is managed at an acceptable level.
1.3 Legislation, Policy and Standards
The following legislation, policy and standards were considered to be applicable in the development
and implementation of the BRM Plan.
1.3.1 Legislation
• Bush Fires Act 1954
• Emergency Management Act 2005
City of Rockingham Bushfire Risk Management Plan 2018-2022 5
• Fire Brigades Act 1942
• Fire and Emergency Service Act 1998
• Conservation and Land Management Act 1984
• Contaminated Sites Act 2003
• Environmental Protection Act 1986
• Environmental Protection and Biodiversity Conservation Act 1999
• Wildlife Conservation Act 1950
• Aboriginal Heritage Act 1972
• Metropolitan Water Supply, Sewerage and Drainage Act 1909
• Country Areas Water Supply Act 1947
• Building Act 2011
• Bush Fires Regulations 1954
• Emergency Management Regulations 2006
• Planning and Development (Local Planning Scheme) Regulations 2015
• Bush Fire Control and Bushfire Brigades Local Law 2001
1.3.2 Policies, Guidelines and Standards
• National Emergency Risk Assessment Guidelines (NERAG) (Second Edition 2015)
• State Emergency Management Policy 2.5 - Local Arrangements
• State Emergency Management Policy 3.2 - Emergency Risk Management Planning
• State Emergency Management Preparedness Procedure 8 - Local Emergency Management
Arrangements
• State Hazard Plan for Fire (Westplan Fire)
• State Planning Policy 3.7: Planning in Bushfire Prone Areas
• State Planning Policy 3.4: Natural Hazards and Disasters
• Guidelines for Planning in Bushfire Prone Areas (2015)
• Western Australian Emergency Risk Management Guidelines (Emergency Management
WA 2005)
• A Guide to the Use of Pesticides in Western Australia (Dept. of Health 2010)
• Guidelines for Plantation Fire Protection (DFES 2011)
• Firebreak Location, Construction and Maintenance Guidelines (DFES)
• Bushfire Risk Management Planning – Guidelines for preparing a Bushfire Risk
Management Plan (2015)
• AS/NZS ISO 31000:2009 - Risk management – Principles and guidelines
• AS 3959-2009 Construction of buildings in bushfire-prone areas
• Asset Protection Zone Standards (DFES)
1.3.3 Other Related Documents
• National Strategy for Disaster Resilience
• National Statement of Capability for Fire and Emergency Services (AFAC 2015)
• Public Service Circular No. 88 Use of Herbicides in Water Catchment Areas (Dept. of Health
2007)
• Code of Practice for Timber Plantations in Western Australia (Forest Products Commission
2006)
• Bushfire Risk Management Planning Handbook
• Bushfire Risk Management System (BRMS) User Guide
City of Rockingham Bushfire Risk Management Plan 2018-2022 6
• Rockingham Bushfire Mitigation Procedures 2016 (BRM Plan Implementation Framework
Action)
• City of Rockingham Fire Control Notice (annual notices)
• City of Rockingham Town Planning Scheme No.2
• City of Rockingham Strategic Community Plan (SCP) 2015-2025
• City of Rockingham Community Plan Strategy (CPS) – Bushfire Risk Mitigation
• Warnbro Dunes Bushfire Risk Planning Area Risk Assessment (BRPARA) 2016
• City of Rockingham Burning of Rubbish, Refuse and Vegetation Council Policy
• City of Rockingham Rules Governing the operation of Bushfire Brigades Council Policy
• City of Rockingham Foreshore Strategy 2012-2017
• City of Rockingham Foreshore Management Plan 2016-2021
• City of Rockingham Greening Plan 2017
• City of Rockingham Local Planning Strategy
• City of Rockingham Rural Planning Strategy 3.1.1
• City of Rockingham Community Safety Strategy 2015 -2025
• City of Rockingham Planning Policy No.3.1.1 Rural Land Strategy
• City of Rockingham Planning Policy No 7.2 Local Bushland Strategy
• City of Rockingham Planning Policy No 7.2 Assessment of Local Bushland
• City of Rockingham Reserve Prioritisation Report 2015
• City of Rockingham Community Plan Strategy – Natural Area Conservation 2017
• Technical Assessment of Natural Areas in the City of Rockingham 2017
2. The Risk Management Process
The risk management processes used to identify and address risk in this BRM Plan are aligned with the
international standard for risk management, AS/NZS ISO 31000:2009, as described in NERAG (2015).
This process is outlined in Figure 1 below.
Establish the context
Risk Assessment
Communication & consultation
Risk Identification
Monitoring & review
Risk Analysis
Risk Evaluation
Risk Treatment
City of Rockingham Bushfire Risk Management Plan 2018-2022 7Figure 1 - An overview of the risk management process 1
2.1 Roles and Responsibilities
Table 1: Roles and Responsibilities
Stakeholder Name* Roles and Responsibilities
Local Government As custodian of the BRM Plan, coordination of the development and
ongoing review of the integrated BRM Plan.
Negotiation of commitment from land owners to treat risks identified in
the BRM Plan.
As a treatment manager, implementation of treatment strategies.
As part of the approval process, submission of the draft BRM Plan to the
Office of Bushfire Risk Management (OBRM) to review it for consistency
with the Guidelines.
As part of the approval process, submission of the final BRM Plan to
council for their endorsement and adoption.
Department of Fire Participation in and contribution to the development and
and Emergency implementation of BRM Plans, as per their agency responsibilities as the
Services (DFES) Westplan Fire Hazard Management Agency.
Support to local government through expert knowledge and advice in
relation to the identification, prevention and treatment of bushfire risk.
Facilitation of local government engagement with state and federal
government agencies in the local planning process.
Undertake treatment strategies, including prescribed burning on behalf
of Department of Lands for Unmanaged Reserves and Unallocated
Crown Land within gazetted town site boundaries.
In accordance with Memorandums of Understanding and other
agreements, implementation of treatment strategies for other
landholders.
Office of Bushfire Under the OBRM Charter, to ensure bushfire risk is managed in
Risk Management accordance with AS/NZS ISO 31000 and reporting on the state of
(OBRM) bushfire risk across Western Australia.
Review BRM Plans for consistency with the Guidelines prior to final
endorsement by council.
Department of Participation in and contribution to the development and
Biodiversity implementation of BRM Plans.
Conservation and Providing advice for the identification of environmental assets that are
Attractions (DBCA) vulnerable to fire and planning appropriate treatment strategies for their
protection.
As treatment manager, implementation of treatment strategies on
department managed land and for Unmanaged Reserves and
Unallocated Crown Land outside gazetted town site boundaries.
In accordance with Memorandums of Understanding and other
agreements, implementation of treatment strategies for other
landholders.
1
Source: AS/NZS ISO 31000:2009, Figure 3, reproduced under SAI Global copyright Licence 1411-c083.
City of Rockingham Bushfire Risk Management Plan 2018-2022 8Stakeholder Name* Roles and Responsibilities
Other State and Assist the local government by providing information about their assets
Federal Government and current risk treatment programs.
Agencies Participation in and contribution to the development and
implementation of BRM Plans.
As treatment manager, implementation of treatment strategies.
Public Utilities Assist the local government by providing information about their assets
and current risk treatment programs.
Participation in and contribution to the development and
implementation of BRM Plans.
As treatment manager, implementation of treatment strategies.
Corporations and As treatment manager, implementation of treatment strategies.
Private Land Owners
2.2 Communication & Consultation
As indicated in Figure 1, communication and consultation throughout the risk management process is
fundamental to the preparation of an effective BRM Plan. To ensure appropriate and effective
communication occurred with relevant stakeholders in the development of the BRM Plan, a
Communication Strategy was prepared. The strategy is provided at Appendix 2.
City of Rockingham Bushfire Risk Management Plan 2018-2022 93. Establishing the Context
3.1 Description of the Local Government and Community Context
3.1.1 Strategic and Corporate Framework
Westplan Fire requires an integrated Bushfire Risk Management Plan (BRM Plan) be prepared for each
local government area across Western Australia. The BRM Plan is to be in accordance with the
templates and guidelines prepared by the OBRM. The guidelines assign the preparation responsibility
to local government.
Planning Services is responsible for overseeing the preparation of the BRM Plan. The Director of
Engineering and Parks Services is responsible for its ongoing implementation. Accepting that there are
multiple stakeholders inside and outside of the Local Government involved in the effective
implementation of the BRM Plan process, it is important to note that the City’s responsibility is to
facilitate the management of the risk of bushfires to the community as supported by the delivery of
this plan.
The City of Rockingham’s Strategic Community Plan (SCP) seeks to implement a Community Plan
Strategy (CPS) that focuses on bushfire hazard reduction throughout the city. The intent is for the City
of Rockingham to fulfil this strategy through various means, one of which includes the implementation
of a BRM Plan. The City of Rockingham, in addressing the SCP, has developed a CPS for Bushfire Risk
Management; the preparation of a BRM Plan is an element of the CPS. To successfully implement the
BRM Plan a BRM Plan Implementation Framework has been developed and outlines responsibilities
and actions for the City of Rockingham.
The BRM Plan encourages the community to work collaboratively and self-sufficiently in providing
guidance and negotiating suitable treatment strategies for mitigation of bushfire risk. The responsible
land holders will, as a result of the BRM Plan process, be able to allocate resources effectively in order
to lower the bushfire risk to an acceptable level. Furthermore, existing and future works programs
conducted by the City of Rockingham, that have the potential to influence bushfire risk, will be
identified, reviewed and refined and will utilise the BRM Plan risk register to prioritise resources and
influence the decision making process.
In completing the BRM Plan, asset identification and risk assessment is conducted by City Officers
using the risk assessment methodology described in the BRM Plan Guidelines. When appropriate,
assessments will be conducted in consultation with relevant land owners and stakeholders. Identified
assets will be mapped, recorded and assessed in the Bushfire Management System (BRMS) provided
to local governments by the Department of Fire and Emergency Services (DFES).
The BRM Plan and BRMS outputs will be utilised in the review and refinement of existing works
programs that are designed to reduce bushfire risk in the local government area. The Local Emergency
Management Committee (LEMC) and Bushfire Advisory Committee (BFAC) is encouraged to utilise the
BRM Plan in addressing bushfire risk throughout the City of Rockingham and are encouraged to
reference the BRM Plan in Local Emergency Management Arrangements (LEMAs).
3.1.2 Location, Boundaries and Tenure
The City of Rockingham local government area is located approximately 40 kilometres south of the
Perth Central Business District (CBD). The City is comprised of 16 suburbs and encompasses an area of
approximately 66,850 hectare (including marine reserve), with significant areas of coastline,
conservation reserve and parkland. The City of Rockingham boarders with the City of Kwinana to the
City of Rockingham Bushfire Risk Management Plan 2018-2022 10north, the Shire of Serpentine Jarrahdale to the East and the City of Mandurah to the south. The BRM
Plan area covers the mainland of the City of Rockingham (which excludes marine reserve and also
Garden Island) and has an area of approximately 24,540 hectares. The BRM Plan area is divided into
nine planning areas for the purposes of the BRM Plan, as seen in Appendix 1 - Drawing 1 to Drawing
5.
The BRM Plan area is comprised of numerous land owners and managers including, but not limited to,
the City of Rockingham, state government departments and agencies, infrastructure managers,
property developers and also private land owners and corporations. A brief overview of the
percentage coverage of various land managers can be seen in Table 2. The City contains significant
amounts of both freehold and reserve lands that are used for specific purposes, leased to community
associations, or are unused or unallocated. All tenure will come under the same scrutiny when
assessing bushfire risk.
Table 2: Overview of Land Tenure and Management within the BRM Plan Area 2
Land managers/Agency* % of BRM Plan Area
Private and Other 64.25
Department of Biodiversity, Conservation and
15.4
Attractions
State Housing Authority 9.2
City of Rockingham 9.1
Unallocated Crown Land (DFES/DoL) 1.3
Water Corporation 0.75
Total 100
Through the BRM Plan process, identified management parcels (or assets) were determined on a case
by case analysis of elements such as potential treatment strategies, tenure boundaries or existing
access.
3.1.3 Population and Demographics
The City of Rockingham has experienced rapid and sustained growth, with the population expanding
from 32,845 to 109,415 in the 25 years between 1986 and 2011, which was aided by the construction
of the Mandurah railway line and the extension of Kwinana Freeway. The City’s population forecast
for 2016 is 134,719 persons and 196,312 persons by 2036, representing an average annual increase
of 2.37% as can be seen in the graph below (profile.id). The City’s populous are currently living in
42,462 dwellings with an average household size of 2.64 persons. With and increasing population
comes a forecast average increase of 6,943 dwellings every 5 years (from 2016 onward, as seen in the
graph below) with an estimated 77, 494 dwellings by 2036.
300000
200000
Population
100000 Dwellings
0
1991* 1996* 2001* 2006* 2011 2016 2021 2026 2031 2036
2
Source: City of Rockingham - IntraMaps Online Mapping
City of Rockingham Bushfire Risk Management Plan 2018-2022 11Graph 1: City of Rockingham Population and No. Dwellings Growth and Forecast 1991-2036 (profile.id)
Figure 2 below identifies the areas of urban expansion in South Baldivis and Karnup that is likely to
occur in the future. These areas of urban expansion along the urban-bushland interface will require
close attention when assessing bushfire risk.
Urban
Expansion
Areas
Figure 2 South Metropolitan Planning Framework 3
According to profile.id statistics the suburbs of Karnup and Keralup (combined), Baldivis and also
Hillman and East Rockingham (combined) have the lowest population density in the local government
area (0.25, 3.6 and 2.04 persons per hectare respectively). The suburbs of Secret Harbour, Shoalwater
and Safety Bay have the highest population densities (20.99, 17.63 and 17.35 persons per hectare
respectively). Lower densities are generally attributed to the eastern regions of the City which tend to
be rural, semi-rural or peri-urban areas undergoing development that are arguably more susceptible
to large bushfires. The western regions of the City are predominantly developed, with post Second
World War residential areas, with homes that have not been built in accordance with AS 3959. These
3
Source: Perth and Peel @3.5Million - Department of Planning Heritage and Lands
City of Rockingham Bushfire Risk Management Plan 2018-2022 12areas are prone to ember attack from bushfires or may directly be impacted by flames where
interfacing with bushland reserve, such as the foreshore reserve.
Graph 2: Population Density (persons / ha) per Suburb (profile.id)
20.99
17.35 17.63
13.08
10.4 10.98
6.03 6.26 6.39 6.56
3.60
2.04
0.25
In recent decades the rapid population growth has seen residential development spread to eastern
rural and semi-rural areas in the form of either normal or ‘special’ residential land-uses ranging to the
larger “rural lifestyle” lots. A number of larger rural lots also remain. There is a good level of
compliance with the City’s annual Fire Control Notice (95% compliance in 2017-2018), however, the
continued growth within the City brings with it the subsequent increase in bushfire risk mitigation
related works required to protect a larger population and increasing number of assets throughout the
City. Until recent times, land management regimes in non-urban areas were focussed on maintaining
biodiversity, with the retention of native vegetation being afforded priority above fire management
imperatives. Current strategies now seek to strike a balance between bushfire management and
environmental objectives where possible. Environmental and cultural considerations are further
discussed under section 3.2.1.
Of note, when considering the vulnerability of persons to bushfire hazard is their ability to respond in
an emergency (such as elderly and disabled individuals). Elderly aged between 70 and 85 and over
are estimated to increase from 8,545 persons in 2011 to 20,851 in 2036 within the City. The two largest
age structures in the City of Rockingham currently are 25 and 34 and also 35 to 49 year olds (profile.id).
Persons aged between 35 to 49 have the greatest forecast increase by 2036 (predicated increase from
24,587 persons in 2011 to 39,032 persons in 2036).
3.1.4 Economic Activities and Industry
Employment statistics as of the 2015/2016 financial year (profile.id) indicate 33,012 jobs within the
City of Rockingham, with an average growth of approximately 4% per annum since 2001. Retail trade
was the largest employer in the City in 2015/2016, generating 6,080 jobs. Other leading industries and
their employment levels in 2015/2016 in the City can be seen in Table 3. From 2010/11 to 2015/16
there has been growth in persons employed in a number of industries within the City, including; retail
trade (1,004 additional persons), education and training (694 additional persons), accommodation and
food Services (549 additional persons) and construction (472 additional persons).
City of Rockingham Bushfire Risk Management Plan 2018-2022 13Table 3: Employment by Industry in the City of Rockingham in 2010/11 and 2015/2016 (profile.id)
2015/16 2015/16 % 2010/11 2010/11 % 2010/11-
Persons Persons 2015/16
Industry
Change
(Persons)
Retail Trade 6080 18.4 5076 17 1004
Education and Training 4296 13 3601 12.1 694
Health Care and Social Assistance 4100 12.4 3945 13.2 155
Public Administration and Safety 3754 11.4 3727 12.5 27
Construction 3236 9.8 2764 9.3 472
Accommodation and Food Services 3045 9.2 2495 8.4 549
Manufacturing 1748 5.3 1532 5.1 216
Other Services 1533 4.6 1294 4.3 239
Administrative and Support Services 876 2.7 955 3.2 -80
Professional, Scientific and Technical
821 2.5 866 2.9 -45
Services
Transport, Postal and Warehousing 773 2.3 873 2.9 -100
Rental, Hiring and Real Estate Services 570 1.7 626 2.1 -55
Arts and Recreation Services 531 1.6 483 1.6 48
Wholesale Trade 499 1.5 513 1.7 -13
Agriculture, Forestry and Fishing 395 1.2 341 1.1 54
Financial and Insurance Services 370 1.1 382 1.3 -12
Information Media and
197 0.6 194 0.7 3
Telecommunications
Mining 116 0.4 116 0.4 1
Electricity, Gas, Water and Waste Services 71 0.2 41 0.1 30
Total 33012 100 29827 100 3185
In 2015/16, 61,206 City of Rockingham residents were employed and 22,585 (36.9%) were employed
locally (profile.id). This proportion (which has decreased since 2006) indicates the propensity for
residents to seek employment outside the City of Rockingham. This indicates that there may be
reduced occupancy levels for dwellings during normal working hours and dwellings may be left
unattended during a bushfire. As a result, individuals may attempt access to their dwelling during a
bushfire fire or not being present to defend against a bushfire or suitably evacuate (e.g. removal of
belongings and evacuation of livestock and pets).
Of note is that the mixed rural and semi-rural suburbs of Baldivis and Karnup are host to a number of
industries including agriculture (forestry, fishing, viticulture, orchards, aquiculture, beef, lamb and
wool production etc.), mining, accommodation and food services, transport (rail and bus), wholesale
trade (timber, agricultural and grocery products), waste services, utilities (gas, water and electricity
supply), retail and also recreational services that are all arguably more susceptible to bushfire due to
their proximity to bushfire prone vegetation compared to industry in the western, more urbanised
regions of the City.
The East Rockingham Industrial Zone and the adjoining Kwinana Industrial Area contain many land
uses that would be considered to be high-risk in terms of bushfire risk. Industrial operations in this
area have the potential to ignite a bushfire, prolong its duration, or increase its intensity. Such industry
may also expose the community, fire fighters and the environment to dangerous, uncontrolled
substances during a bushfire event. It is anticipated that potential ‘hazard’ risks due to ‘chemicals’ will
be addressed by DFES as part of a Fire & Emergency Services Emergency Response Guides (FESERG)
constructed by the local Brigade’s and available to DFES Communications Centre.
In accordance with BRM Plan Guidelines, all industries within the City of Rockingham within 100
metres of bushfire prone vegetation are potentially at risk from bushfire and will be scrutinised under
City of Rockingham Bushfire Risk Management Plan 2018-2022 14the same risk assessment methodology. Industries that potentially have a higher bushfire risk (due to
their increased likelihood of being affected by bushfire) may include those located in rural, semi-rural
and peri-urban areas of the City such as Baldivis and Karnup; and also the industrial zones of East
Rockingham and Port Kennedy that are located in close proximity to bushfire prone vegetation in
certain areas.
3.2 Description of the Environment and Bushfire Context
3.2.1 Topography and Landscape Features
The City of Rockingham is located on the Swan Coastal Plain which extends from the Darling Fault in
the east to the continental slope west of Rottnest Island, and from the Murchison River in the north
to the Southern Ocean in the south. The Swan Coastal Plain is approximately 20 to 30 kilometres wide
consisting of a series of geomorphic entities running parallel to the coastline.
Soil-landscape mapping produced by the Department of Agriculture and Food Western Australia
(DAFWA) shows that the BRM Plan area has five soil-landscape systems (1:250,000 scale) that
generally run parallel to the coastline, which can be as seen in Appendix 1 - Error! Reference source
not found.. The unique elevation profiles, soil types and broad vegetation types associated with each
mapped soil-subsystem can influence a fire’s rate of spread (ROS), intensity and also create limitations
when implementing treatments to manage the risk of bushfire and limit suppression activities
(firefighting equipment access). Each soil-landscape system description and extent within the BRM
Plan area can be seen in Table 4 below.
Table 4: Soil-landscapes within the City of Rockingham
Extent
Extent of
within
Soil System Description (McArthur et al. 1960) BRM Plan
BRM Plan
Area (%)
Area (ha)
A gently undulating aeolian sand plain about 20 km wide with the dunes
to the north of Perth generally having greater topographic relief than
those to the south. Other wetlands, consisting of swamps and lakes,
Bassendean 2112.2 8.6
have formed in the inter-dunal swales of the Bassendean Dune System,
in the inter-barrier depressions between the Spearwood and
Bassendean dune Systems, and within the Spearwood Dune System.
A piedmont and valley-flat alluvial plain consisting predominantly of
Pinjarra clayey alluvium that has been transported by rivers and streams from 4600.6 18.8
the Darling and Dandaragan Plateaus.
The most westerly dune system, which flanks the ocean, is the
Quindalup Dune System, consisting of wind-blown lime and quartz
Quindalup beach sand forming dunes or ridges that are generally oriented parallel 8678.1 35.4
to the present coast, but which may also occupy blowouts within the
Spearwood Dune System.
Consists of slightly calcareous aeolian sand remnant from leaching of
the underlying Pleistocene Tamala limestone. The rivers crossing the
coastal plain are flanked by clayey floodplains and river terraces of
Spearwood recent origin. Other wetlands, consisting of swamps and lakes, have 7448.9 30.4
formed in the inter-dunal swales of the Bassendean Dune System, in
the inter-barrier depressions between the Spearwood and Bassendean
Dune Systems, and within the Spearwood Dune System.
The Vasse deposits are largely estuarine and low-lying, and where
Vasse 1644.4 6.7
exposed often lead to formation of Acid Sulfate Soils.
City of Rockingham Bushfire Risk Management Plan 2018-2022 15The Quindelup soil system is generally comprised of sandy limestone soils, undulating dunes and most
often occurs near the coast. These coastal areas are subject to strong prevailing winds and are prone
to sand drift amongst the dunes areas where any vegetation is removed. Such locations in the BRM
Plan area include Port Kennedy Scientific Park, Lark Hill and dune areas in the suburbs of Golden Bay,
Peron, Port Kennedy, Rockingham, Singleton, Waikiki and Warnbro, all of which are located in the
western coastal regions of the BRM Plan area.
The Bassendean and Spearwood soil systems, generally running north-south in the central regions of
the BRM Plan area, are often comprised of woodland vegetation types in elevated regions and
wetlands in lower lying undulations, both of which are valued by the community for their aesthetic
and ecological attributes. These soil systems gently rise and fall in elevation forming vegetated hills
with high fuel loads that can increase the rate of spread and intensity of a fire. Such areas include the
urban, rural and semi-rural areas of Baldivis and Karnup that are west of the Kwinana Freeway. Recent
fires in these areas have been significant and resulted in closure of the freeway and caused disruption
to/impacted on many local residents. Undulations within the Bassendean and Spearwood soil systems
result in wetland formations such as the Tamworth Swamp and Stakehill Swamp that are heavily
vegetated and contain high bushfire fuel loads.
The Pinjarra and Vasse soil systems generally in the central and also eastern portions of the City which
are associated with the Serpentine River can be prone to acid sulfate soil occurrences and also wetland
vegetation comprising of high bushfire fuel loads. These areas can be laden with clearing, prescribed
burning and earth moving restrictions that prohibit effective bushfire mitigation from being
implemented. Such areas include the rural areas of Baldivis and Karnup east of Kwinana Freeway and
Lake Cooloongup and Lake Walyungup reserve areas in central regions of the City.
Elevation
The elevation of the City of Rockingham ranges between 0 metres (AHD) to approximately 74.5 metres
(AHD). Throughout the City there are many examples of small and gradual elevation rises and troughs
that are the result of millions of years of geomorphological evolution and subsequent erosion and
deposition of soils within the Swan Coastal Plain region. Changes in elevation can influence the spread
of bushfire, where for example, a bushfire will have a faster rate of spread, larger flame length and
increased radiant heat when travelling up a slope, thus increasing the likelihood of ignition for exposed
assets, and the potential level of damage (consequence). The elevation profile of the BRM Plan area
can be seen in Appendix 1 - Drawing 1.
Environmental and Heritage Considerations
Areas of bushfire prone vegetation, that may require the implementation of risk reduction treatment
strategies, may also have biodiversity and heritage values. Treatment strategies may include
mitigation activities that have adverse impacts on biodiversity and conservation values, or
unnecessarily expose heritage sites found throughout the BRM Plan area to secondary risks. Such
assets are afforded protected under state and federal legislation, so selection of appropriate
treatment strategies must adhere to the legislative requirements, policies, or procedures applicable
to the type of works proposed. The following environmental and heritage related considerations may
include, but are not limited to:
• Environmentally Sensitive Areas (EP Act 1986 and described in the Environmental Protection
(Environmentally Sensitive Areas) Notice 2005 Notice).
• Conservation Significant Vegetation Complexes (Heddle et al.) as per Environmental
Protection Authority (EPA) position statement No.2 (2003)
City of Rockingham Bushfire Risk Management Plan 2018-2022 16• Threatened and Priority Ecological Communities (EPBC Act 1999, EP Act 1986)
• Conservation Significant Flora and Fauna (EPBC Act 1999, EP Act 1986)
• Environmental Weeds (BAM Act 2007) and the spread of all weeds
• Carnaby’s Black Cockatoo and ‘Cockatube’ Locations (EPBC Act 1999).
• Geomorphic Wetlands (EP Act 1986)
• Ramsar Wetlands (EPBC Act)
• Bush Forever (EP Act 1986)
• Greenway Linkages
• Acid Sulfate Soils and Contaminated Sites (EP Act 2968, CS Act 2003)
• Revegetation Areas
• Nyungar and European Heritage Sites (AH Act 1972, PD Act 2005)
3.2.2 Climate and Bushfire Season
Climate
The south-west of Western Australia experiences a Mediterranean-type climate of mild, wet winters
and warm to hot, dry summers (Beard 1990). The climate of the region is strongly influenced by the
position of a band of high pressure known as the sub-tropical ridge. For much of the year the ridge is
located to the south allowing the east or south easterly winds to prevail. During the cooler months
the ridge periodically moves to the north allowing cold fronts to pass over the west coast and deliver
much of the annual rainfall. The Swan Coastal Plain typically receives 800 to 900 millimetres of annual
precipitation and 5 to 6 nearly dry months per year.
The closest Bureau of Meteorology (BOM) Station to the suburb of Rockingham with long-term data
is Kwinana BP Refinery (station 009064, operated 1955-2012). Annual mean rainfall is 745.5 mm, with
a single winter peak (highest in June-July), February is the hottest month with a mean maximum daily
temperature of 29.5°C, July and August are coldest, with a mean minimum daily temperature of 10.6°C
(BOM 2015).
Climate Change
It is scientifically proven that our global climate system is warming, resulting in a myriad of changes to
local weather systems and the frequency of extreme weather events. For example, it is known that
the duration, frequency and intensity of heat waves have increased across large parts of Australia
since 1950 and there has been an increase in extreme fire weather and longer fire seasons across large
parts of Australia since the 1970’s (CSIRO & BOM 2016). The bushfire season is expected to extend
into the normally wetter and cooler months of the year. Simulations for drought as a result of climate
change indicate a 20% increase in drought months over Australia by 2030. By 2070, the increase is
estimated to be 80% for south-western Australia (CSIRO 2007).
The State’s mean temperature (the average of the maximum and minimum temperatures) over the
past 15 years is the highest since records commenced in 1910. 2013 was WA’s hottest year and 2015
was the second hottest. The mean temperature for WA has risen by approximately 0.9⁰C since 1910.
Daily minimum temperatures have also shown a similar rising trend, with 1998 recording the highest
mean daily minimum for the state, and 2015 recording the third highest.
The weather conditions that influence bushfire behaviour are air temperature, relative humidity, wind
speed and direction, rainfall and drought. It is expected that an increase in temperatures due to
climate change will see drier fuels which are easier to ignite (Robeson, 2004). There will be regions
that see a decreasing relative humidity that will result in a greater chance of ignition. Also, higher wind
City of Rockingham Bushfire Risk Management Plan 2018-2022 17speeds will see a rise in fire intensity and rate of spread due to increased supply of oxygen to the fire,
increased ember spread and preheating of fuels ahead of the main fire (CSIRO 2007). Ultimately, the
change in weather conditions from climate change will result in a greater likelihood and increased
intensity of bushfire events.
Bushfire Season
The greatest fire risk is summer through to autumn, when the moisture content in vegetation is low.
This is exacerbated by high temperatures, low humidity and strong winds. The BOM states that
extreme fire weather conditions in the Perth region typically occurs with strong easterlies or north
eastern winds that are associated with a strong high to the south of the state and a trough off-shore.
Easterly winds represent about 60% of extreme fire weather days compared to less than 5% associated
with southerly winds. Approximately 15% of Perth extreme fire weather days occurred in a westerly
flow following the passage of a trough (BOM 2013).
Dangerous fire weather conditions often follow a sequence of hot days and easterly winds that
culminate when the trough deepens near the coast and moves inland. Winds can change from easterly
to northerly and then to westerly during this sequence of climatic events (BOM 2013). This wind shift
is a pattern regularly experienced in summer, when westerly winds often arrive during the afternoon,
when temperatures have peaked and bushfire fuels are at their driest. Fires burning under these
conditions can intensify quickly as the fire changes direction and the long flank becomes the head fire.
The City of Rockingham implements gazetted restricted burning times and prohibited burning times.
Restricted burning times, during which a permit to burn is required, begins 1 April to 31 May and also
from 1 of October to 30 November. Prohibited burning times, during which no burning is permitted,
begins 1 December to 31 March.
3.2.3 Vegetation Classifications and Bushfire Prone Vegetation
The extent of bushfire prone vegetation, as mapped in accordance with the OBRM state-wide Bushfire
Prone Area Mapping Standard (2015) and AS 3959, is a means to determine the proportion of the BRM
Plan area that is subject to, or likely to be subject to bushfire attack. Bushfire prone vegetation
ultimately informs the designation of Bushfire Prone Areas on the State Wide Map of Bushfire Prone
Areas, under a power of legislation for the purpose of the Building Code of Australia. As well as
mapping existing remnant native vegetation, the mapping also takes into consideration areas of pre-
European vegetation that have been cleared and are now classified as unmanaged grasslands
(particularly in rural and semi-rural areas). Areas with native and non-native regrowth and areas
where rehabilitation has occurred are also included. The total amount of bushfire prone vegetation,
as of May 2017, covers 15,860 ha (64.6%) of the BRM Plan area and can be seen in Appendix 1 -
Drawing 2.
There are nine vegetation complexes (Heddle et al. 1980) occurring within the City of Rockingham.
Vegetation complexes group vegetation types on the basis of patterns in soil and geomorphology. The
nine vegetation complexes and their locations within the BRM Plan area are briefly summarised in
Table 5 below and can be seen in Appendix 1 - Drawing 3. Each broad vegetation complex will influence
potential fire behaviour based on its unique vegetation structure, fuel loading and the slope under the
vegetation.
City of Rockingham Bushfire Risk Management Plan 2018-2022 18Table 5: Vegetation Complexes (Heddle et al. 1980
Hectares
Vegetation Complex Description Remaining
in CoR
Bassendean-Central and South Woodland To Low Woodland And Sedgelands 333.79
Cottesloe-Central and South Woodland And Open Forest And Closed Heath 849.31
Dardanup Mosaic Of Vegetation Types From Adjacent Complexes 131.25
Guilford Open Forest To Tall Open Forest And Woodland 4.97
Herdsman Sedgelands And Fringing Woodland 297.53
Karrakatta-Central and South Open Forest And Woodland 1295.88
Quindalup Coastal Dune Complex - Low Closed Forest And Closed Scrub 3457.51
Serpentine River Closed Scrub And Fringing Woodland 433.69
Yoongarillup Woodland To Tall Woodland And Open Forest 463.90
3.2.4 Bushfire Frequency and Causes of Ignition
A report provided by DFES’ Operational Information System Branch identifies that from the period
starting 1 July 2010 to 30 June 2017, there have been a total of 1,471 landscape fire ignitions within
the City of Rockingham, at an average of 210 per year, which can be seen in Table 6. The number of
ignitions has trended downward since 2010/11 by an average of 13 less per year. The 2016/2017
period saw 181 landscape fire ignitions, which is 10 ignitions less than the 2015/2016 financial year
and 34 ignitions below the previous 5 year average of 225 fires. This downward trend may be
attributed to any number of factors, ranging from differences in weather/seasonal conditions, to
increased community awareness, targeted arson programs and improved reporting. It does not
however prompt a lesser need to plan and prepare for bushfire events.
As seen in Table 6 below, 50.7% of all ignitions across the City is suspicious/deliberate behaviour (746)
and is the most common cause. Cigarettes (190), undetermined causes (145), reigniting of previous
fires (82), cause unreported (66) and other open flames or fire (61) combined account for another 38%
of all ignitions.
Table 6: City of Rockingham Landscape Ignition Data Summary Years 2010/11-2016/16 (DFES)
2010/ 2011/ 2012/ 2013/ 2014/ 2015/ 2016/
Bushfire Ignition Cause Total
11 12 13 14 15 16 17
Suspicious/Deliberate 121 130 89 93 97 102 114 746
Cigarette 23 16 17 48 32 32 22 190
Undetermined 47 26 25 10 17 11 9 145
Reignition of previous fire 13 14 5 17 15 14 4 82
Unreported 19 24 10 0 2 1 10 66
Other open flames or fire 18 11 18 9 1 1 3 61
Children misadventure 7 10 9 1 0 1 1 29
Burn off fires 4 2 2 6 2 5 5 26
Weather Conditions - Lightning 0 8 1 1 3 7 0 20
Vehicles (incl. Farming Equipment/Activities) 1 1 1 5 2 4 3 17
Campfires/bonfires/outdoor cooking 3 2 2 1 0 2 3 13
Power lines 1 1 2 2 4 3 0 13
Equipment - Mechanical or electrical fault 3 1 1 0 1 0 4 10
Hot works (grinding, cutting, drilling etc..) 1 1 1 2 3 2 0 10
Weather Conditions (High winds, natural
3 0 3 0 1 1 1 9
combustion etc. Excludes Lightning)
City of Rockingham Bushfire Risk Management Plan 2018-2022 19Human Error (Left on, knock over,
1 4 1 1 0 1 0 8
unattended etc.)
Improper Fuelling/Cleaning/Storage/Use of
3 1 1 1 0 0 0 6
material ignited
Fireworks/flares 3 0 0 0 0 2 0 5
Electrical distribution (excl. power lines) 1 0 1 0 1 0 1 4
Sleeping/Alcohol/Drugs/Physical-Mental
0 1 0 1 1 0 1 4
impairment
Equipment - Operational deficiency 0 0 0 0 1 2 0 3
Construction, installation, design deficiency 0 0 0 1 0 0 0 1
Heat from other hot objects or friction 0 0 1 0 0 0 0 1
Service, Maintenance Equipment - cause
1 0 0 0 0 0 0 1
unknown
Yard maintenance, hand held equipment 0 1 0 0 0 0 0 1
TOTAL 273 254 190 199 183 191 181 1,471
Graph 3 and Appendix 1 - Drawing 5 show that from 1 July 2010 to 30 June 2017 landscape bushfire ignitions occurred in
the following suburbs (from most to least ignitions); Baldivis (298, 20.3%), Rockingham (245, 16.7%), Port Kennedy (156,
10.6%), Cooloongup (151, 10.3%), Warnbro (134, 9.1%), East Rockingham (83, 6.6%), Waikiki (66, 5.2%), Safety Bay (56,
4.4%), Secret Harbour (57, 4.5%), Golden Bay (49, 3.9%), Karnup (28, 2.2%), Peron (23, 1.8%), Hillman (23, 1.8%), Singleton
(21, 1.7%) and Shoalwater (13, 1%).
Graph 3: Landscape Ignition per Suburb (2010/11 to 2016/17)
298
245
134 151 156
72 84 91
54 61
18 23 23 27 33
1
Table 7 below shows the four most common causes of landscape bushfire ignitions in the five suburbs
where ignitions have occurred the most.
Table 7: Five Suburbs where the most Landscape Bushfire Ignitions occurred and their Causes (2010/11 to 2016/17)
Baldivis Rockingham Port Kennedy Cooloongup Warnbro
Suspicious/Delib Suspicious/Delib Suspicious/Delib Suspicious/Delib Suspicious/Delib
erate (75) erate (138) erate (88) erate (96) erate (86)
Undetermined Cigarette (50) Cigarette (17) Cigarette (13) Cigarette (14)
(52)
Unreported (43) Other open Other open Undetermined Reignition of
flames or fire (13) flames or fire (11) (13) previous fire (6)
Cigarette (40) Undetermined Undetermined Reignition of Children
(13) (10) previous fire (10) misadventure (5)
Data over the seven year period from 1 July 2010 to 30 June 2017 shows that 43% (634) of all landscape
bushfire ignitions within the City of Rockingham occur in the summer months of December to
City of Rockingham Bushfire Risk Management Plan 2018-2022 20February, 24% (350) occurring in spring (September to November), 20% (296) in autumn (March to
May) and 13% (191) in winter (June to August). Furthermore, it is identified that 41% (616) of these
ignitions occurred between 12pm and 6pm with a significant amount of ignitions (430, 29%) occurring
between 2pm and 6pm, which, among other causes, may be correlated to the hottest part of the day
and the end of the school day. Graph 4 shows the distribution of landscape bushfire ignitions over 24
hours and at 2 hours intervals between 1 July 2010 to 30 June 2017.
Graph 4: Landscape Bushfire Ignitions in the City of Rockingham over 24 hours (2010/11 to 2016/17)
210 220
186
129 141 133
103 109
88
53 66
33
This fire history data may serve to influence the decision making process by identifying potential areas
where fires are more likely to start and why, contributing to the implementation of appropriate
treatment strategies. Targeted education and prevention programs are just one example of allocating
resources effectively to implement strategies in the BRM Plan areas where, for example,
suspicious/deliberate and cigarette disposal related ignitions are occurring most.
City of Rockingham Bushfire Risk Management Plan 2018-2022 214. Asset Identification and Risk Assessment
4.1 Planning Areas
The City of Rockingham BRM Plan area has been divided into nine planning areas; East Rockingham,
Rockingham Waikiki, Warnbro Dunes, Warnbro Port Kennedy, Secret Harbour Singleton, Karnup,
Baldivis South, Baldivis North and Baldivis East. Attached in Appendix 1, the planning area boundaries
can be seen on Drawing 1 to Drawing 5.
4.2 Asset Identification
Asset identification and risk assessment has been conducted at the local level using the methodology
described in the Guidelines. Identified assets have been mapped, recorded and assessed in the
Bushfire Risk Management System (BRMS). Identified assets are categorised into the following
subcategories as seen in Table 8.
Table 8: Asset Categories and Subcategories
Asset Category Asset Subcategories
Human • Residential areas
Settlement Rural urban interface areas and rural properties.
• Places of temporary occupation
Commercial, mining and industrial areas located away from towns and
population centres (that is, not adjoining residential areas).
• Special risk and critical facilities
Hospitals, nursing homes, schools and childcare facilities, tourist
accommodation and facilities, prison and detention centres, government
administration centres and depots, incident control centres, designated
evacuation centres, police, fire and emergency services.
Economic • Agricultural
Pasture, grazing, livestock, crops, viticulture, horticulture and other
farming infrastructure.
• Commercial and industrial
Major industry, waste treatment plants, mines, mills and processing and
manufacturing facilities and cottage industry.
• Critical infrastructure
Power lines and substations, water and gas pipelines, telecommunications
infrastructure, railways, bridges, port facilities and waste water
treatments plants.
• Tourist and recreational
Tourist attractions and recreational sites that generate significant tourism
and/or employment within the local area.
• Commercial forests and plantations
• Drinking water catchments
Environmental • Protected
Rare and threatened flora and fauna, ecological communities and
wetlands.
• Priority
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