STATE HAZARD PLAN Fire (Interim) - semc.wa.gov.a
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STATE HAZARD PLAN
Fire (Interim)
Note: This plan contains information relating to the arrangements for
managing emergencies resulting from the hazard of fire. It must be
read in conjunction with the State Emergency Management plan,
which contains the generic emergency management arrangements.
Responsible Agency: Department of Fire and Emergency Services
Approved by: State Emergency Management Committee
Resolution Number: 90/2018
Version Number: V01.02
Date of approval: 07 December 2018
Date of effect: 21 December 2018
Review date: May 2019
Once printed, this is an
State uncontrolled
Hazard Plan versionFire
of the document. The current version is available on the State Emergency Management Website: www.semc.wa.gov.au
v01.02 Page 1 of 37CONTACT OFFICER
To provide comment on this plan, contact:
Department of Fire and Emergency Services
20 Stockton Bend,
Cockburn Central WA 6164
AMENDMENT TABLE
AMENDMENT
DETAILS AMENDED BY:
# DATE
1 August 2013 FINAL DRAFT LB
2 11 September Minor grammatical amendments ML
2013
3 October 2015 Statement of fact amendments to Part 5 – Recovery to reflect changes to SEMP SG
4.4 – Recovery Coordination; change Department of Parks and Wildlife (DPaW) to
Parks and Wildlife (P&W); fire investigation wording
4 May 2016 Statement of fact changes SEMC Secretariat
5 October 2016 Reference to SEMC Strategic Control Priorities Bulletin in section 4.1 SEMC Secretariat
6 December Correction to the plan by removing the term ‘by mutual agreement’ from the Note SEMC Secretariat
2016 section of 4.1 Responsibility for Response. Approved by SEMC (Resolution
Number 62/2016).
7 October 2017 New State Hazard Plan format, Statement of fact changes, removal of duplication, DFES
inclusion of assurance activities, Machinery of Government changes, expansion
and further clarification of treatment options
8 April 2018 Update to the establishment of Incident Support Groups in section 4.8 Levels of Office of Emergency
Response table, Level 2 Management
State Hazard Plan Fire (Interim) v 01.02 Page 2 of 379 December Version 01.02 – Statement of fact amendments to reflect: OEM to SEMC and SEMC Business Unit
2018 State Emergency Public Information Plan to State Support Plan – Emergency
Public Information references.
This State Hazard Plan is available on the State Emergency Management Committee website http://www.semc.wa.gov.au.
State Hazard Plan Fire (Interim) v 01.02 Page 3 of 371. Introduction ......................................................................... 6 3.2.4 Incident Management Facilities 17
1.1 Scope .............................................................................. 6 3.2.5 Incident Management Team Structures 17
3.2.6 Community Education and Information 17
1.2 Hazard Definition ............................................................. 6 3.2.7 Property Fire 18
1.3 Organisational Roles and Responsibilities ...................... 6
3.3 Assistance Arrangements with other Jurisdictions......... 18
1.3.1 Bushfire 7
4. Response ........................................................................... 19
1.3.2 Property Fire 7
4.1 Strategic Control Priorities ............................................. 19
1.4 Related Documents and Legislation ................................ 7
4.2 Responsibility for Response .......................................... 19
1.5 Assurance Activities ........................................................ 8
4.3 Response Arrangements ............................................... 19
2. Prevention and Mitigation ................................................ 10
4.4 Notifications ................................................................... 20
2.1 Responsibility for Prevention and Mitigation .................. 10
4.5 Bushfire Warning System .............................................. 20
2.2 Mitigation Strategies - Bushfire ...................................... 10
4.6 Property Fire Warning System....................................... 21
2.2.1 Land Use Planning 10
2.2.2 Prescribed Burning 11 4.6.1 Emergency Alert 21
2.2.3 Firebreak and Hazard Reduction Notice 11 4.6.2 Standard Emergency Warning Signal (SEWS) 21
2.2.4 Prohibited and Restricted Burning Times 11 4.7 Activation ....................................................................... 22
2.2.5 Permits to Burn 12 4.8 Levels of Response ....................................................... 22
2.2.6 Total Fire Ban and Harvest Bans 12
2.2.7 Bushfire Risk Management Plans 12 4.8.1 Naming Convention and Incident Number 24
4.8.2 Bush fire Liaison Officers 24
2.3 Mitigation Strategies – Property Fires............................ 13
4.9 Declaration of an Emergency Situation or State of
2.4 Mitigation Strategies – Arson Reduction........................ 14 Emergency .......................................................................... 25
3. Preparedness .................................................................... 15 4.10 Evacuation Arrangements ....................................... 25
3.1 Responsibility for Preparedness .................................... 15 4.11 Financial Arrangements .......................................... 26
3.2 Planning and Arrangements .......................................... 15 5. Recovery ............................................................................ 27
3.2.1 Bushfire 15 Appendix A: Distribution List .............................................. 28
3.2.2 Fire Weather Forecasting 16
3.2.3 Resources 16 Appendix B: Response Roles and Responsibilities ........... 29
State Hazard Plan Fire (Interim) v 01.02 Page 4 of 37Appendix C: Section 13 Bush Fires Act 1954 Appointment
of Authorised Person to take Control or Transfer of
Control under Section 45 (BF Act) – DFES process ...... 35
Appendix D: Section 13 Bush Fires Act 1954 Appointment
of Austhorised Person to take control or Transfer of
Control Under Section 45 (BF ACT) – LG process ......... 36
Appendix E: Section 13 Bush Fires Act 1954 Appointment
of Authorised Person to take Control or Transfer of
Control under Section 45 (BF ACT) – PWS process ...... 37
State Hazard Plan Fire (Interim) v 01.02 Page 5 of 371. INTRODUCTION For the purpose of this Plan, a bushfire is a fire burning in bush,
as described in the Bush Fires Act 1954 2 (BF Act), and property
The State Hazard Plan for Fire (the Plan) provides an overview fire is used to refer to all other fires.
of arrangements for the management of fire in Western
Australia and contains information on fire prevention, 1.3 ORGANISATIONAL ROLES AND
preparedness, response and initial recovery. RESPONSIBILITIES
The Plan refers to a range of existing plans and documents The FES Commissioner is the HMA for fire and is responsible
relating to fire but does not duplicate the information contained for ensuring effective prevention, preparedness, response and
in these, instead providing directions to websites or other recovery to this risk within the community 3.
sources where further information can be obtained if required. The Department of Fire and Emergency Services (DFES) is
The Fire and Emergency Services (FES) Commissioner, is the responsible for the development, implementation and revision
Hazard Management Agency (HMA) for fire 1. of this State Hazard Plan – Fire, in consultation with key
stakeholders.
1.1 SCOPE
DFES, the Department of Biodiversity Conservation and
This Plan covers emergency management arrangements within Attraction’s (DBCA) Parks and Wildlife Service (PWS), and
the geographic boundaries of WA, for the hazard of fire. It local governments (LGs) are responsible for fire management
describes risk reduction strategies, preparedness for, response in their respective jurisdictions. Their overall roles and
to and initiation of recovery arrangements following the impact responsibilities are highlighted below.
of a fire.
Each agency with a role or responsibility under this plan is to
1.2 HAZARD DEFINITION have appropriate operational procedures that detail that
A fire refers to any actual or impending bush or property fire agency’s response arrangements in accordance with this plan.
that impacts and/or causes or threatens to cause injury, loss of Additionally, agencies involved in fire response should maintain
life and/or damage to property or natural environment that may a Business Continuity Plan to ensure they maintain capabilities
require a response. in the event of a major fire or wide spread fire incidents
statewide.
3 Emergency Management Regulations 2006 s 17(2)
1
Emergency Management Regulations 2006 s 17(2)
2 Bush Fires Act 1954, s7.
State Hazard Plan Fire (Interim) v 01.02 Page 6 of 37A coordinated response to a fire requires emergency with support from the State Recovery Coordinator if
management agencies to undertake a variety of agreed and required).
statutory responsibilities. Information regarding the roles and • Day to day responsibilities for fire management is shared
responsibilities of relevant agencies under this plan is detailed between DFES, PWS, and LG within their respective
at Appendix B. jurisdictions as outlined in Appendix B.
1.3.1 Bushfire Property holders have statutory and common law obligations to
The BF Act applies to the whole of the State and is used for the prepare for, prevent and manage fires on their land 6.
prevention, preparedness and response elements of bushfires. 1.3.2 Property Fire
Recovery is initiated as early as practicable during a response
Certain provisions of the Fire Brigades Act 1942 (FB Act), BF
by the appropriate Controlling Agency and managed by the
Act and EM Act are used for the prevention, preparedness and
impacted LGs.
response to property fires.
“Occupier of land” and “owner or occupiers” have statutory
While some provisions of recovery will be initiated by the
obligations to prepare for, prevent and respond to bushfires on
appropriate response agency, the overall management of and
their land 4. Responsibilities are allocated as follows:
responsibility for recovery rests with the property
• Prevention: DFES, PWS, and LGs for their designated owner/manager.
areas 5;
1.4 RELATED DOCUMENTS AND LEGISLATION
• Preparedness: DFES, PWS, and LG for their respective
areas; This plan is to be read in conjunction with the following
documents:
• Response: DFES statewide; PWS and LG are: Controlling
Agencies for their respective areas of jurisdictional • Building Act WA 2011;
responsibility; and • Building Regulations 2012;
• Recovery: LGs (Recovery will be initiated by the • Building Code of Australia (updated annually);
Controlling Agency and managed by the impacted LGs
• Bush Fires Act 1954 (the BF Act);
4 Bush Fires Act 1954, s28 and s33. 6 Bush Fires Act 1954 s28 and s33.
5 Note that DFES and PWS also do mitigation works on other lands besides those
lands they manage directly through respective MOUs with other agencies.
State Hazard Plan Fire (Interim) v 01.02 Page 7 of 37• Bush Fires Regulations 1954; • State Emergency Welfare Plan; and
• Conservation & Land Management Act 1984 (the CALM • Local Emergency Management Arrangements.
Act);
1.5 ASSURANCE ACTIVITIES
• Dangerous Goods Regulations 1992 (Parts 4, 5);
The HMA ensures that aspects of operational performance are
• Emergency Management Act 2005 (EM Act);
reviewed and that a consistent and structured approach is
• Emergency Management Regulations 2006 (EM applied to all aspects of operational performance. This includes
Regulation); the implementation and evaluation of the outcomes (lessons
• Explosives and Dangerous Goods Act 1961; identified, findings, recommendations, etc.) of such reviews 7.
• Fire Brigades Act 1942 (the FB Act); Operational Performance Assurance activities identify and
• Fire Brigades Regulations 1943; generate opportunities for improvement in operational
performance to ensure that incident management and response
• Fire and Emergency Services Act 1998 (the FES Act); capabilities are continuously improved to provide the most
• Local Government (Miscellaneous Provisions) Act 1960; effective service to the community. The types of performance
• Local Government Act 1995; reviews conducted are:
• Meteorology Act 1955 (Cwlth); • Reactive operational performance reviews
• National Construction Code of Australia; • Live incident reviews
• Occupational Safety and Health Act 1984; • Operational investigations
• Occupational Safety and Health Regulations 1996; • Hot debrief
Planning and Development Act 2005; • Formal operational Debrief
• State Planning Policy 3.7 – Planning in Bushfire Prone • Post Incident Analysis
Areas • Major Incident Review
• State Support Plan - Emergency Public Information; • External Reviews/Investigations
• Department of Health WA State Health Emergency • Proactive Operational Performance reviews
Response Plan;
• Post-Exercise Debrief
7 DFES Policy No 54: Operational Performance Assurance Policy, 2017
State Hazard Plan Fire (Interim) v 01.02 Page 8 of 37• Operational Readiness Review
• External Agency Report Reviews.
Information relating to two types of review (Post Incident
Analysis (PIA) and Major Incident Reviews (MIR) conducted by
DFES) is included in the DFES Annual Report; this is an
essential component of external performance reporting to the
Minister for Emergency Services, State Parliament and the
wider community. This information also facilitates decision
making affecting DFES operations 8.
Post Operation Reports shall be provided to SEMC in
accordance with State EM Policy Section 5.11 and State EM
Plan Section 5.7.
8 DFES Directive – Operational Performance Assurance, 2017
State Hazard Plan Fire (Interim) v 01.02 Page 9 of 372. PREVENTION AND MITIGATION The responsibility for property fire prevention/mitigation lies with
the property owner or occupier of premises.
2.1 RESPONSIBILITY FOR PREVENTION AND
MITIGATION 2.2 MITIGATION STRATEGIES - BUSHFIRE
As the HMA, the FES Commissioner has overall responsibility A summary of the risk treatment (i.e. mitigation) options for
for the prevention and mitigation aspects of the hazard of fire. bushfire is provided below.
In addition, the PWS and LGs have roles in fire prevention and 2.2.1 Land Use Planning
mitigation, which are detailed below. Additional planning and building requirements may apply to
developments within designated bushfire prone areas in
LGs are responsible for planning in their local communities by
accordance with Schedule 2 Part 10A of the Planning and
ensuring appropriate local planning controls are consistent with
Development (Local Planning Schemes) Regulations 2015,
the objectives and requirements set by the Western Australia
State Planning Policy 3.7 Planning in Bushfire Prone Areas, the
Planning Commission (WAPC) 9. The WAPC is responsible for
supporting Guidelines for Planning in Bushfire Prone Areas and
approving subdivision applications and has delegated powers
the Building Code of Australia. Certain exemptions and
for the determination of development applications to local
exclusions may apply.
governments and development assessment panels.
LG planning and development processes also play a role in
Building construction standards are set by the State, usually by
bushfire risk management by utilising specific standards as
reference to the National Construction Code of Australia. Local
outlined in the WAPC Guidelines for Planning in Bushfire Prone
governments and registered building surveyors have
Areas 10. In addition, LGs are responsible in their local planning
responsibility for ensuring adherence to building construction
scheme for defining bushfire prone areas and ensuring new
standards.
buildings within these areas comply with any applicable
DFES also has a statutory referral obligation for commercial construction and development standards.
and industrial building development applications through the
DFES also has a statutory referral obligation for land
WA Building Commission by providing operational advice
development proposals through WAPC by providing
concerning fire safety to Building Surveyors.
9WAPC State Planning Policy 3.4 Natural Hazards and Disasters, 10 Guidelines for Planning in Bushfire Prone Areas,
https://www.dplh.wa.gov.au/spp3-4 https://www.dplh.wa.gov.au/information-and-services/state-planning/bushfire-
planning-reform/state-planning-policy-3-7-and-guidelines
State Hazard Plan Fire (Interim) v 01.02 Page 10 of 37professional advice concerning fire management conditions clearing up of any fire hazard may be ordered. If the owner or
that WAPC may stipulate. occupier fails to carry out the work, the LG may enter the land
and prepare the fire breaks at the cost of the owner or
2.2.2 Prescribed Burning
occupier 14.
Prescribed burning can be undertaken by brigades, groups or
units and others for the purposes of removal or abatement of a 2.2.4 Prohibited and Restricted Burning Times
fire danger 11. A large number of volunteer brigades across the Prohibited Burning Times (PBT) may be declared by the
State are involved in mitigating risk within their communities Minister and published in the Government Gazette stipulating
across various land tenures by way of prescribed burning. the times of the year that it is unlawful to set fire to bush. The
FES Commissioner has the ability to suspend the declaration
PWS are required to manage land under their control which
and apply conditions in which a fire may be lit.
includes carrying out planned or ‘prescribed’ burning 12. PWS
will use prescribed burning to reduce bushfire-related risk to Restricted Burning Times (RBT) may be declared by the FES
communities and built and natural assets at both the local scale Commissioner and requires a person to obtain a permit if they
and the landscape scale, and also to achieve biodiversity wish to set fire to the bush.
conservation, forest silviculture, research and other land
LGs may vary the RBT and PBT by a period of no more than 14
management objectives 13.
days at a time where seasonal conditions provide for the
PWS develops annual burn programs throughout the State shortening, extending, suspending, re-imposing or imposing a
which are identified based on various factors, including bushfire further period. It should be noted that PBT cannot be shortened
risk. by more than 14 days at either end of the declared period. 15.
2.2.3 Firebreak and Hazard Reduction Notice The FES Commissioner or LG have the ability to vary the RBT
LGs may publish a notice requiring fire breaks to be prepared by a period not exceeding 14 days at a time where seasonal
and maintained for a set period of time. The width and position conditions provide for the shortening, extending, suspending,
of the fire break are specified in the notice. An LG may direct re-imposing or imposing a further period 16.
any owner or occupier of land by notice to prepare fire breaks
within the time specified in the notice. Similarly, the removal or
11 Bush Fires Act 1954, s33 14 Bush Fires Act 1954, s33
12 Conservation and Land Management Act 1984 s33 15 Bush Fires Act 1954 s17
13Department of Parks and Wildlife, Corporate Policy Statement No. 88 – Prescribed 16 Bush Fires Act 1954 s18 and Bush Fires Regulations 1954 r15, 15A and 15B
Burning, 2015, p. 2.
State Hazard Plan Fire (Interim) v 01.02 Page 11 of 372.2.5 Permits to Burn • Information is broadcast on ABC Local Radio and other
Permission must be sought to set fire to bush during RBT. media outlets.
Permits are to be in a written format and be obtained from a • Information is shown on LG roadside fire danger signs
Bush Fire Control Officer of the LG of the district or other
• Harvest and vehicle movements are controlled by LGs but
approved person as identified in the BF Act. All conditions set
must be implemented when the Fire Danger Index (FDI)
out in the permit must be adhered to 17.
for local grasslands is 35 or above.
During unrestricted burning times, fires may be lit without Exemptions that allow certain activities to continue can be
permits being issued or notice given to neighbours, with the obtained from DFES. Conditions will be applied to the
exception that notice must be given to a forest officer, when a exemptions to manage risks associated with the specified
fire is to be lit on land adjoining State Forest or Timber activity. Exemptions may be revoked by DFES in writing to the
Reserve. This restriction applies at all times of the year 18. holders. Regulations also allow for local control to stop certain
2.2.6 Total Fire Ban and Harvest Bans activities independently of a TFB declaration through
application of a Regulation 24C Ban, though this is not
DFES, through the authority of the FES Commissioner, may discretionary once the locally measured Grassland FDI reaches
declare a Total Fire Ban (TFB) for a defined area where 35 20.
specific fire weather conditions exist or where extensive fires
are burning. When such a declaration has been made, no LGs may issue Harvest and Vehicle Movement Bans 21 if their
person may light a fire or carry out an activity that causes or is Bush Fire Control Officer considers that the use of engines,
likely to cause a fire 19. vehicles, plant or machinery during the PBT or RBT is likely to
cause a fire or contribute to the spread of a bushfire. A Harvest
When a TFB is declared: and Vehicle Movement Ban may be issued at any time,
• Information is made available on the DFES website and especially if fire resources are heavily committed.
Info Line (1800 709 355 / 13 33 37) 2.2.7 Bushfire Risk Management Plans
• Information is available on Emergency WA Bushfire Risk Management Plans (BRMPs) identify assets
(www.emergency.wa.gov.au) (Human Settlement, Economic, Cultural and Environmental), at
risk from bushfire, assign them a risk rating and treatment
17 Bush Fires Act 1954 s18 20 DFES Standard Administrative Procedures 37
18
Conservation and Land Management Act 1984 s105 21
Bush Fires Regulations 1954 r38A
19 Bush Fires Act 1954 s2B
State Hazard Plan Fire (Interim) v 01.02 Page 12 of 37priority, and set out a broad program of proposed coordinated, 2.3 MITIGATION STRATEGIES – PROPERTY FIRES
multi-agency treatment strategies to help reduce the risk to an Although DFES, LG and other agencies provide occasional
acceptable level. site/property visits and fire safety advice these visits do not
LGs with high or extreme bushfire risk are required to develop constitute acceptance or otherwise of fire safety compliance.
an integrated BRMP outlining a strategy to treat or reduce The functions of the FES Commissioner in preventing fires are
bushfire related risk across all land tenures 22. referred to in Section 25(a) of the FB Act. This is enacted in the
LG, DFES, PWS and Forest Products Commission (FPC) following ways:
participate in, and contribute to, the BRMP process. In addition, • DFES provides input to various Australian Standards
all State agencies that control or manage land within the LG related to building / property fire safety (active and passive
must contribute relevant risk data to the planning process. features) through direct representation on certain
Data and information provided to the planning process must be standards committees and review of other related
in a defined form 23. standards;
Bushfire risk management must be underpinned by a rigorous • DFES contributes to an Australasian Fire and Emergency
process 24 that identifies, analyses, assesses, treats and Service Authorities Council (AFAC) Built Environment
reviews risks. The resultant plan should be reviewed by the Technical Group which develops a national approach to
Office of Bushfire Risk Management (OBRM) and endorsed by building, structure fire and life safety;
the LG Council.
• DFES contributes to the AFAC Fire Investigation Network
An LG may use its Bush Fire Advisory Committee (BFAC) or 25 Group (FING) which promotes an interchange of ideas,
Local Emergency Management Committee (LEMC) as a means information and developments in the areas of fire and
of negotiating a commitment by all land owners and land arson prevention and incident reporting;
managers to a plan of action to reduce the incidence and • DFES are required to receive building plans for all
impact of bushfire on their local community. The BFAC may commercial (Class 2-9) buildings in WA 26;
advise its LG Council on bushfire response and prevention,
including development of local firebreak notice.
22 State EM Prevention and Mitigation Procedure 1. 24 State EM Policy 3.2.
23
State EM Prevention and Mitigation Procedure 1 and OBRM BRMP Guidelines 25
Bush Fires Act 1954 s67
and template. 26 Building Act 2011.
State Hazard Plan Fire (Interim) v 01.02 Page 13 of 37• DFES provides feedback, regarding operational Vegetation fires determined to be deliberate or suspicious
effectiveness, of plans received to the owners / consistently account for the majority of fire brigade
developers; attendances.
• DFES develops Operational Pre-Plans and FES Arson reduction strategies are a shared responsibility for police
Emergency Response Guides for certain structures and and fire controlling agencies. A variety of strategies have been
facilities; identified including:
• DFES conduct inspection visits of properties (private and
• Bushfire Investigation Team Meetings;
public buildings) to review risk and to familiarise
operational crews with the site; • Regional briefings conducted by DFES Fire Investigation
and Analysis Unit, PWS and WA Police;
• DFES in partnership with WA Police, LGs and PWS
develop and initiate arson prevention measures; • Bushfire Investigation Strike Force Vulcan implemented
by WA Police;
• DFES develop and implement several fire safety
educational campaigns such as Winter Safe, Smoke • Juvenile and Family Fire Awareness (JAFFA) program;
Alarm, School Aged Education programs such as Bushfire • Extinguish Arson signage;
Patrol, Year Three Home Fire Safety and the Bushfire • Arson Reward Scheme; and
preparedness program; and
• Crime Stoppers Reporting of Bushfire Arson.
• DFES has the power to “remove and keep possession of
any material which may tend to prove the origin of a fire” DFES contributes to the AFAC Fire Investigation Network
to determine the cause and use the findings for prevention which promotes an interchange of ideas, information and
initiatives and potential prosecution 27. developments in the areas of fire and arson prevention and
incident reporting.
2.4 MITIGATION STRATEGIES – ARSON REDUCTION
The lighting of deliberate fires in contravention of state
legislation constitutes a criminal act. Arson offences carry
penalties up to and including life imprisonment.
27 Fire Brigades Act 1942, x34(1) Also section 14(a)(e)(h) of BF Act
State Hazard Plan Fire (Interim) v 01.02 Page 14 of 373. PREPAREDNESS The following arrangements and plans are in place and
maintained:
3.1 RESPONSIBILITY FOR PREPAREDNESS
The Western Australian Fire and Emergency Services
As the HMA for fire the FES Commissioner has responsibility (WAFES) Manual
for:
This Manual outlines the overall operational management
• promoting resilience activities within communities to structure and systems used by DFES for emergency
improve the management of future risks; and preparedness and response throughout the State. It unites
• promoting all emergency management activities related to State Legislation, State Emergency Management Policies and
fire preparedness are undertaken. Plans with the DFES's structures and its operational doctrine. It
DFES, PWS, LG and other government departments and describes the FES Commissioner's intent for the role of DFES
agencies are responsible for the following preparedness during emergencies in Western Australia.
activities within their respective jurisdictions: State Bushfire (Level Three) Pre-Formed Teams:
• Pre-incident planning to identify response arrangements; Governance Arrangements
• Training of firefighters and support personnel to allow a The State has established five multi-agency pre-formed
competent, coordinated, effective and safe incident bushfire incident management teams (PFTs), capable of
response; and managing extended response to Level 3 bushfires, utilising
personnel and resources from DFES, PWS, FPC, other
• Establishing mechanisms to provide the community with
agencies, LGAs and volunteer emergency service
information and education and engage them in bush fire
organisations. A Working Group (PFT WG) provides oversight
risk management prior to and during an incident.
and management of PFTs. The PFT WG consists of three
3.2 PLANNING AND ARRANGEMENTS DFES representatives, three PWS representatives and one
WALGA representative.
3.2.1 Bushfire
At the State level, DFES is responsible for the development of Regional/District Arrangements 28
this Plan in consultation with PWS, WA Local Government DFES, PWS and LGs have Regional Interagency Bushfire
Association (WALGA) and other agencies. Command and Control Arrangements. These incorporate
28 Agencies utilise the terms Regional/District interchangeably to suit their own
boundaries and hierarchies.
State Hazard Plan Fire (Interim) v 01.02 Page 15 of 37agency and interagency preparedness and response 3.2.2 Fire Weather Forecasting
arrangements and formalise the requirement for DFES and The Bureau of Meteorology (BoM) is responsible for the
PWS regional staff to give effect to Regional Operations development and dissemination of fire weather forecasts
Command. Arrangements include procedures/protocols for including daily publicity concerning Fire Danger Ratings and
establishment of pre-formed Level 2 interagency incident provides this in accordance with agreed standards and
management capacity. LGs are integral to these arrangements. protocols 29. The commencement, extension and cessation
The Region/District Operational Advisory Committee is the dates for fire weather forecasts for each bushfire season will be
means to formally involve LG and ensure participation. DFES determined by DFES in consultation with PWS and BoM.
liaises with PWS and individual LGs to assist with development
and maintenance of arrangements. DFES Metropolitan BoM, through formal arrangements with DFES, provides a
Operations Centre/Regional Operations Centre (MOC/ROC) dedicated meteorologist based within the State Operations
will be the focus of regional preparedness for both DFES and Centre (SOC). A SOC Meteorologist Directive issued by the
PWS. PWS is responsible for preparedness levels for PWS SOC Meteorologist (SOCMET) provides instructions and
managed lands. guidance to be followed in the preparation and dissemination of
products and briefings and on the role and responsibilities of
Local the SOCMET. BoM also provides a registered users site
LGs are responsible for developing and maintaining Local containing tailored services for fire agencies.
Emergency Management Arrangements (LEMAs) which include BoM will liaise with DFES, PWS and LGs should severe,
comprehensive (prevention, preparedness, response and extreme or catastrophic fire weather be expected. DFES is
recovery) arrangements for the management of bushfire within responsible for the distribution of severe, extreme and
their area. catastrophic fire weather information and warnings beyond the
Brigade Area Response Plans normal BoM dissemination process. BoM has detailed its fire
weather information processes in its Fire Weather Directive
These plans are the responsibility of both DFES and LGs. which is agreed to by the fire agencies each fire season.
DFES can provide the template – Urban/Bushland Response
Plan – which can be adapted to suit local circumstances. 3.2.3 Resources
DFES, PWS and LGs maintain a fire fighting capability to meet
anticipated needs, including firefighting appliances, trained
personnel for firefighting operations, and incident management
29 Meteorology Act 1955 s6(1)(c)
State Hazard Plan Fire (Interim) v 01.02 Page 16 of 37personnel. Seasonally, DFES and PWS each also contract • IMTs should include personnel with local knowledge
aerial fire suppression aircraft, which are jointly managed where practicable;
through the State Operations Air Desk. • Level 2 IMTs must include a PIO;
Whilst industry is required to have emergency plans in place, • Level 3 IMT’s must include a Deputy IC, Safety Advisor
sometimes these plans have included additional preparedness and PIO; and
provisions. Ideally, these will be made available via LEMAs on
• Level 3 IMTs should be led by an endorsed L3 IC,
LG websites.
whenever practicable, unless otherwise determined by the
In certain areas, some industry groups have established mutual HMA.
aid agreements and/or systems that contribute to the reduction 3.2.6 Community Education and Information
of the effects of an emergency through rapid response and
DFES also develops programs and associated material for use
improved response capability.
at a local level, including school aged education programs that
The identification of appropriate and adequate resources and address bushfire and home fire safety, smoke alarm and home
expertise is essential to preparedness for a fire. Planning at all fire safety programs.
levels should reference resource management, inventory and
PWS conducts a fire education program for students, teachers
acquisition arrangements.
and parents through a number of centres in the South West.
Where an operation is beyond the resources of the State, a
LGs may also have locally developed community education
request for assistance from other jurisdictions may be made in
programs. The local BRMP must include strategies for
accordance with subsection 3.3.
community education relating to preparedness activities in their
3.2.4 Incident Management Facilities local community.
DFES, in conjunction with P&W and LG will identify suitable During fires, DFES will provide community information in a
facilities at which Incident Management Teams (IMT), Incident coordinated manner through the Incident Controller (IC) and/or
Support Groups (ISG) and Operational Area Support Groups Operational Area Manager (OAM).
(OASG) may operate.
Media and public information strategies are reviewed annually
3.2.5 Incident Management Team Structures by DFES to ensure appropriate communication of fire
Incident Management Teams (IMTs) will be maintained information to the community.
regionally during periods of heightened bushfire risk.
State Hazard Plan Fire (Interim) v 01.02 Page 17 of 373.2.7 Property Fire Emergency Management Australia (EMA), Co-Chairs CCOSC
DFES develops Operational Pre-Plans and FES Emergency and is integral to this Arrangement.
Response Guides for certain structures and facilities. The AIA provides for mutual assistance between Australian
emergency management agencies: fire services, emergency
3.3 ASSISTANCE ARRANGEMENTS WITH OTHER
services and land management agencies. It is for domestic use
JURISDICTIONS
within Australia, which may involve New Zealand resources.
Should a fire emergency be beyond the resources of the State, While the focus is to support operational deployments, this
support may be requested from the Australian Government, agreement may also be used to facilitate activities such as
other States or overseas. prescribed burning. Strong partnerships, goodwill and
DFES (inclusive of LG personnel) and PWS maintain schedules cooperation across organisations and interstate boundaries are
of competent personnel capable of deployment interstate. essential to this process.
Deployment will be managed by the agency employing the International arrangements are very similar to state
deployed personnel in accordance with individual agency policy arrangements however a rigorous checklist applies to support
and directives. DFES must be notified of any significant effective response as these are often for longer durations. The
resources being committed to interstate deployments. Ministers CCOSC and NRSC are primary contacts to support a
responsible for DFES and PWS are to be notified before any deployment with Director General of EMA ultimately
interstate deployment of their respective personnel. responsible for coordination of deployment requests interstate
and internationally.
Assistance to interstate, overseas and other jurisdictions for fire
emergencies will be coordinated at a state level by DFES. This All requests for Australian Government Physical Assistance are
will include determination of the process involved and to be made in accordance with State EM Policy Section 5.10
recognition of pre-existing arrangements for inter-jurisdictional and State EM Plan Section 5.6.
assistance by other agencies where such arrangements exist.
The Arrangements for Interstate Assistance (AIA) have been
developed on behalf of the Commissioners and Chief Officers
Strategic Committee (CCOSC) through the National Resource
Sharing Centre (NRSC) to provide the timely and meaningful
exchange of capability between Australian states and territories
during significant incidents. The Commonwealth, through
State Hazard Plan Fire (Interim) v 01.02 Page 18 of 374. RESPONSE 4.2 RESPONSIBILITY FOR RESPONSE
DFES, PWS and LGs are responsible for developing and
This section reflects business as usual and highlights changes
implementing rapid, effective and complementary fire response
that occur in the event of an Emergency Situation or State of
arrangements for their jurisdictions.
Emergency being declared.
4.3 RESPONSE ARRANGEMENTS
4.1 STRATEGIC CONTROL PRIORITIES
DFES
The Strategic Control Priorities for fires are:
Mobilisation and management of DFES resources is
• Protection and Preservation of Life: This is the
coordinated through its Communications Centre (COMCEN)
fundamental overarching priority for the State, and
and the SOC, MOC or relevant ROC. COMCEN receives Triple
includes:
Zero (000) calls state-wide and either dispatches resources
o safety of emergency services personnel. direct or passes call information to PWS or LG.
o safety of community members including vulnerable
PWS
community members and visitors/tourists located within
the incident area. Management of PWS fire fighting response to fire on PWS
• Community warnings and information managed land is through its network of Regional offices, District
offices and work centres. Overall coordination of PWS
• Protection of critical infrastructure and community assets resources, during major incidents, is through the presence of a
• Protection of residential property PWS State Commander in the SOC or WA Police Major
• Protection of assets supporting individual livelihood and Incident Control Centre as necessary.
community financial sustainability Local Government
• Protection of environmental and heritage values.
LG Bush Fire Brigade response to fires is managed at the local
The above priorities are not hierarchical; however protection level by Chief Bush Fire Control Officers, Deputy Chief Bush
and preservation of life must be paramount when developing Fire Control Officers, Captains and Fire Control Officers.
incident action plans that identify the priority roles and actions
for the emergency management response, where there are
concurrent risks or competing priorities 30.
30 The Strategic Control Priorities for Fire, SEMC Bulletin No. 1, October 2016.
State Hazard Plan Fire (Interim) v 01.02 Page 19 of 37Industry • all fire agencies will keep DFES informed of bushfires that
have the potential to escalate to Level 3, including their
Some industries maintain rapid response fire appliances which
incident level declaration 32; the Controlling Agency will
are used in an emergency on/near their site or before the
keep other agencies and support organisations, with a
arrival of DFES operational crews. They are also prepared to
responsibility under this Plan, informed of developing
respond to emergencies at other locations if they are within a
situations that may require their support or action; and
mutual aid group or working under a Memorandum of
Understanding. • PWS and LGs will notify by telephone or radio the relevant
DFES Regional/Metropolitan Duty Coordinators as soon
Owners/occupiers of land as is reasonably practicable where Incident Control
Have a responsibility to take all possible measures to arrangements are transferred to another agency under
extinguish a fire burning on their land, unless that fire is part of Section 45 or 45A of the BF Act as soon as reasonably
burning operations 31. practicable.
4.4 NOTIFICATIONS 4.5 BUSHFIRE WARNING SYSTEM
DFES COMCEN is central to state-wide fire reporting and WA has agreed to a national approach to community warnings
monitoring, as follows: for bushfire. This approach includes a scaled approach with
three levels of Warning and an All Clear. The alert level should
• all fires state-wide are to be reported to DFES COMCEN change to reflect the increasing or decreasing risk to life and
via Triple Zero (000), radio or 1800 198 140 (or by other property. The frequency of alerts depends on the level of threat.
means, where agreed between agencies). COMCEN will The fire agencies agreed bushfire warning system is as follows:
subsequently notify relevant agencies (DFES, PWS, LGs)
as applicable; • ADVICE: A fire has started and there is no immediate
danger, this is general information to keep you informed
• any fires reported directly to a Controlling Agency are to
and up to date with developments.
be immediately reported to DFES COMCEN;
• WATCH AND ACT: There is a possible threat to lives and
• Triple Zero (000) agreements are maintained with those
homes. Conditions are changing, you need to leave the
LGs, with fire response responsibilities, to ensure calls are
area or prepare to actively defend your home to protect
expedited state-wide and reporting arrangements
you and your family. Broadcast in full on ABC Local Radio
identified;
31 Bush Fires Act 1954 s28 32 State EM Response Procedure 2
State Hazard Plan Fire (Interim) v 01.02 Page 20 of 37and 6PR every half hour at quarter past and quarter to the If requested, the public information will advise the public that an
hour. incident has occurred and will:
• EMERGENCY WARNING: You are in danger as your • describe the incident;
area will be impacted by fire. You need to take immediate
• outline what people should do to keep safe from the
action to survive. Listen carefully as you will be advised
threat;
whether you can leave the area or if you must shelter
where you are as the fire burns through your area. Issued • advise of road closures, if appropriate; and
at least every hour. Broadcast in full on ABC Local Radio • advise what fire fighters are doing to protect the public.
and 6PR every 15 minutes. This message will start with a
4.6.1 Emergency Alert
siren sound called the Standard Emergency Warning
Signal (SEWS). Emergency Alert is a warning system that uses web technology
to send alerts to home phones and mobiles. It is an additional
• ALL CLEAR: The danger has passed and the fire is
public information tool that can be used for any emergency
under control, but you need to remain vigilant in case the
where there is an imminent threat, to alert people in a specific
situation changes. It may still not be safe to return home.
location.
Issued to close the incident.
A table detailing the bushfire warning system and detailed The IC or PIO can request an Emergency Alert by calling the
messaging is available on the DFES website at: Bushfire DFES State Situation Analysis Officer.
Warning System. 4.6.2 Standard Emergency Warning Signal (SEWS)
4.6 PROPERTY FIRE WARNING SYSTEM The Standard Emergency Warning Signal (SEWS) is a
distinctive siren sound to alert the community to the broadcast
The IC or Public Information Officer (PIO) can request the
of an urgent safety message relating to a major emergency.
activation of public information in the event of a fire involving a
SEWS is intended for use as an alert signal to be played on
property that is unrelated to a bushfire or hazardous materials
public media such as radio, television, or public address
(HAZMAT), poses a threat to the public or attracts sufficient
systems to draw listeners’ attention to the emergency warning
media attention to warrant the issuing of public information.
that follows. SEWS should only be used when issuing
This request can be made to the controlling agency's media
Emergency Warnings as there is a need to warn people to take
branch or COMCEN.
urgent and immediate action to reduce the potential for loss of
The public information process in State Hazard Plan - HAZMAT life or property from emergency events. Note that it is not
may be applicable if the property fire poses a threat to the required for all Emergency Warnings.
community other than fire or smoke from a bushfire.
State Hazard Plan Fire (Interim) v 01.02 Page 21 of 374.7 ACTIVATION responsibilities and actions of emergency management
DFES will undertake a range of pre-emptive activities prior to stakeholders to ensure a response in which the size of both the
the onset of the hazard, during times of potential threat, or IMT and the coordination structure are proportional to the size
reactively post impact. This may include a range of actions by of the fire emergency. State EM Response Procedure 2
the SOC, MOC or a ROC to support operations 33. enables one of three operational levels to be declared
depending upon the characteristic ‘factors’ of the emergency.
DFES will promptly and deliberately instigate Incident This procedure is aligned with State EM Plan Section 5.1.5 and
Management Teams (IMTs) appropriate to the scale and the DFES WA Fire and Emergency Services Manual. The
requirements of the emergency in accordance with the State’s descriptors are guidance for DFES Operational Managers and
emergency management arrangements 34. are used for all bushfire emergencies.
The level of implementation of plans and operational structures
can vary considerably depending upon circumstances. Factors INCIDENT DESCRIPTORS AND ACTIONS
which may influence the level of response include the degree of LEVELS Note: All fire incidents are regarded as Level 1 unless
threat to a community, the number of DFES fire districts declared otherwise. The following descriptors and
impacted by fire and whether a multi-agency response is actions are in addition to requirements in State EM
required. Response Procedure 2.
If the incident is likely to escalate and may have a significant LEVEL 1 A Level 1 fire incident is characterised by being
impact on WA attracting national attention, DFES should send able to be controlled through local or initial
situation reports to the Australian Government Crisis response resources within a few hours of
Coordination Centre regarding actions taken for this event. notification. Being relatively minor, all functions of
This will assist in providing whole of Australian Government incident management are generally undertaken by
the first arriving crew/s.
situational awareness in the event that Australian Government
assistance is required. • COMCEN to be notified of the fire; and
• PWS and LG can transfer control of bushfires to
4.8 LEVELS OF RESPONSE one another 35. This can be by verbal
The declaration of an incident level is a critical component of agreement, as long as the agreement is
emergency management in terms of triggering the diarised and confirmed in writing as soon as
practicable. DFES ROC/Regional Duty
33
DFES, Fire & Emergency Services Manual – Part Two, 2016, p. 5. 35
Bush Fires Act 1954 s45 and s45A
34 Ibid, p. 5.
State Hazard Plan Fire (Interim) v 01.02 Page 22 of 37Coordinator (RDC) or MOC/ Metropolitan Duty developing situations that may require their
Coordinator (MDC) to be notified (verbally) on support or action;
each occasion where transfer of control has • If a Level 2 incident has the potential to
occurred. escalate to a Level 3 incident, the FES
LEVEL 2 Level 2 fire incidents are more complex either in Commissioner as HMA (or delegate) must
size, resources, risk or community impact. They contact the State Emergency Coordinator to
usually require delegation of a number of incident advise them of the current situation, the
management functions, and may require potential Level 3 declaration and discuss
activation of the SECG and consider the
interagency response.
potential for an emergency situation declaration;
• COMCEN to be notified of all fires; and
• PWS and LG can transfer control of bushfires to • DFES ROC/MOC to be established and
one another. This may be verbal agreement, as available.
long as recorded, and confirmed in writing as
soon as practicable. DFES ROC/RDC or LEVEL 3 Level 3 fire incidents are protracted, large and
MOC/MDC to be notified of any situations resource intensive. They may affect community
where transfer of control has occurred; assets and/or critical infrastructure, and attract
• Pre-formed Interagency IMTs may be utilised if significant community, media and political interest.
required and available; These incidents will usually involve delegation of all
the Incident Management functions.
• Establishment of an Incident Support Group
(ISG) must be considered; • COMCEN to be notified of the fire;
• Relevant Emergency Coordinator should be • Upon a Level 3 declaration and the appointment
provided with an Incident Situation Report of an IC under s13 of the BF Act, DFES will
(ISR) 36, 37; assume Controlling Agency status;
• Fire status to be regularly reported to DFES • The IC appointed under s13 will report to the
ROC/RDC or MOC/MDC including changes in designated OAM;
incident status, values at risk and resourcing; • At declaration of a Level 3 incident, the FES
• The Controlling Agency will keep agencies, with Commissioner as HMA (or delegate) must
a responsibility under State Hazard Plan - Fire contact the State Emergency Coordinator to
as well as support organisations, informed of advise of a Level 3 declaration, discuss
36 DFES Directive 3.2 Incident Control – SAP 3.2C Incident Action Plans 37 Note: P&WS will provide ISRs to DFES for L2 and L3 fires, who can then pass
them on to others as required.
State Hazard Plan Fire (Interim) v 01.02 Page 23 of 37activation of the SECG and consider the DFES COMCEN is responsible for providing the incident
potential for an emergency situation declaration; number for all fires once notified. Controlling agencies must use
• The FES Commissioner as HMA may at his/her this incident number, as well as the assigned name for
discretion appoint an OAM to undertake consistency.
strategic management;
• Pre-formed Interagency L3 IMTs will be utilised 4.8.2 Bush fire Liaison Officers
if appropriate; The FES Commissioner may authorise a Bush Fire Liaison
• An ISG must be established, an Operational Officer (BFLO) or other person to take control of all operations
Area Support Group (OASG) may be required; in relation to that fire if a bushfire is burning in the district of a
• A Section 13 (BF Act) appointment must be LG on land other than conservation land, or on conservation
applied by the FES Commissioner or delegate; lands 38;
and
(a) at the request of the LG; or at the request of the CALM
• DFES ROC/MOC and SOC to be established,
with all reporting and coordination of resourcing Act CEO; or
through DFES ROC/MOC to SOC; and (b) if, because of the nature or extent of the bushfire, the
• A briefing note will be provided by DFES to the DFES considers that it is appropriate to do so.
SECG and supporting agencies.
In making such a decision, he may consider if:
Table 1: Fire Incident Levels, Descriptors and Actions
(a) a bush fire has assumed or is likely to assume such
4.8.1 Naming Convention and Incident Number proportions as to be incapable of control or suppression
The initial Controlling Agency is responsible for providing the by the firefighting agency in whose jurisdiction it is
incident name for each fire they are controlling. It is critical that burning; or
once named the fire is referred to consistently by that name. (b) a bush fire is not being effectively controlled or
suppressed by the firefighting agency or agencies in
Incidents will be named using a common standard. In many whose jurisdiction(s) it is burning.
instances, the locality place or feature may be adequate. The
nearest major roadway and the LG name may be necessary for Note: Unless otherwise agreed, the BFLO or other person
other situations where there are no specific features. authorised under Section 13 of BF Act, will continue to report to
the agreed Controlling Agency for Level 1 and Level 2 fires.
38 Bush Fires Act 1954 s13(4) (5).
State Hazard Plan Fire (Interim) v 01.02 Page 24 of 37A multi-agency or multi-jurisdictional fire requires or may 4.10 EVACUATION ARRANGEMENTS
require the coordination of resources and public information. Evacuation is a risk mitigation strategy that may be used to
DFES RDCs will advise the DFES Situation Analysis Officer mitigate the effects of an emergency on a community. The
(SAO) when it is considered that this situation may exist based decision to evacuate is complex and requires careful
on one or more of the following criteria: consideration to ensure residents are not placed at greater risk.
• there is not a clear plan or objectives established within 4 DFES, PWS and LGs are responsible for the identification of ‘at
hours and the fire is continuing to burn uncontrolled; risk’ locations that may be impacted by fire. Facilities and
• an urban settlement is in direct path of the fire; community groups ensure that appropriate actions are taken to
safeguard the local community. This may include the
• the IC believes the fire is not likely to be contained using
identification of refuges and safer places as required. DFES
existing/available resources;
retains a list of evacuation centres provided by Department of
• the nature and extent of the bushfire requires state-level Communities and manages the sharing of centre activations
coordination of resources or public information; and and status through WebEOC.
• the bushfire has been declared a Level 3 incident.
Refuge sites and evacuation centres should be identified in
4.9 DECLARATION OF AN EMERGENCY SITUATION LEMAs 44, and are identified and established in partnership with
OR STATE OF EMERGENCY LG and Department of Communities.
The FES Commissioner has powers in relation to natural When evacuation is required during an authorised period under
disasters 39 and fires under the Fire and Emergency Services section 13, section 14B of the BF Act provides the authorised
Act 1998 40 and Fire Brigades Act 1942 41. These powers are person and Police Officers with additional powers to:
wide-ranging and are normally adequate to respond to fire
• direct or by direction prohibit, the movement of people,
emergencies. Should additional powers be required, the EM
animals and vehicles within, into, out of, or around the
Act can be used to access emergency powers through the
affected area or any part of the affected area;
declaration of an ‘Emergency Situation’ 42 or a ‘State of
Emergency’ 43.
39 As defined in the Fire and Emergency Services Act 1998 s3 42 Emergency Management Act 2005 s 50 and State EM Response Procedure 6
40 Fire and Emergency Services Act 1998 s18B. 43Emergency Management Act 2005 s 56, s61 and State EM Response Procedure
13
41 Fire Brigades Act 1942 s34.
44 State EM Policy Statement 5.7.4
State Hazard Plan Fire (Interim) v 01.02 Page 25 of 37• direct the evacuation and removal of persons or animals
from the affected area or any part of the affected area;
and
• close any road, access route or area of water in or leading
to the affected area.
4.11 FINANCIAL ARRANGEMENTS
In order for LGs and other agencies to recover costs, DFES
approval must be gained for each occasion, prior to the
expense being incurred.
State Hazard Plan Fire (Interim) v 01.02 Page 26 of 375. RECOVERY
The HMA or Controlling Agency has a role in initiating both
relief and recovery during emergencies. It is the responsibility
of the Controlling Agency to undertake an Initial Impact
Assessment (IIA) during the response to an emergency incident
and a Comprehensive Impact Assessment (CIA) prior to
concluding response activities. Both the IIA and the CIA must
be provided to the members of the Incident Support Group,
Recovery Coordinators and the ROC/MOC and OAM.
The impacted local government is responsible for managing the
community recovery process.
During emergencies, the respective Controlling Agency will
ensure that relief agencies are provided access to the affected
community, however at all times will ensure that access to the
affected area is limited to ensure community safety, security
and welfare. The Controlling Agency will assist relief agencies
to deliver essential services in safe and accessible community
based locations 45.
Recovery activities will be undertaken in accordance with the
State EM Policy Section 6, State EM Plan Section 6, and will
commence during the response phase. As such, there needs to
be high levels of understanding and cooperation between
response and recovery organisations at each level (State,
District, local).
45 DFES, WA Fire and Emergency Services Manual – Part One: Overview, 2017,
p. 20
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