2009 VICTORIAN BUSHFIRES ROYAL COMMISSION Letters Patent issued 16 February 2009

SUBMISSIONS ON RESOURCE TRACKING

Date of Document: 14 May 2010 Solicitor’s Code: 7977 Filed on behalf of: The State of Victoria Telephone: +61 3 8684 0444 Prepared by: Facsimile: +61 3 8684 0449 Victorian Government Solicitor's Office DX 300077 Melbourne Level 25 Ref: PAC 944884 121 Exhibition Street Attention: John Cain Melbourne VIC 3000

1. These submissions are made on behalf of the State of Victoria (the State) in

response to the submissions by Counsel Assisting dated 3 May 2010 to the

2009 Victorian Bushfires Royal Commission (the Commission).1

Overview

2. The State:

2.1 Supports proposed recommendations 1 and 2.

2.2 Supports in principle proposed recommendation 3 and proposes an

alternative recommendation.

Introduction

3. The State acknowledges the importance of tracking resources during

incidents, both to deploy resources efficiently, and to protect the safety of

the crews.2

4. Both the Country Fire Authority (CFA) and the Department of Sustainability

and Environment (DSE) employ a broad range of solutions to track

resources, some of which are comparatively ‘low tech’ such as the T Card

system,3 and others which utilise current and emerging technologies such

1 The State notes that the submissions of Counsel Assisting are mainly focussed on tracking CFA resources. Accordingly, these Submissions focus primarily on the tracking systems CFA have in place. 2 Slijepcevic T18187:11-T18187:19 3 Corbett Ex 874, WIT.3004.043.0298, [37]-[40];Slijepcevic Ex 872, WIT.3024.006.0113, [25]

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as DSE’s Incident Resource Information System (IRIS),4 Resource and

Aircraft Tracking Systems (RATS), and SpiderTracks, ESTA’s Computer

Aided Dispatch (CAD) (used by CFA) and CFA's Incident Management

System (IMS).

5. Technology is moving forward in a way that will, in the medium term, allow

the State to appropriately and effectively track resources and to use tracking

information to inform decision making and further improve the safety of

firefighters.

6. Implementation of the Roadmap and the Emergency Services

Communications Strategic Framework (Framework)5 will enable the State

to make informed decisions about the business needs of each agency and

technical options in relation to resource tracking, across the broad range of

emergency services activities, including bushfires.6

7. However, technological solutions to resource tracking can not be considered

in isolation. The State emphasises that:

7.1 Resource tracking systems, and particularly technological solutions,

should never be considered as a substitute for radio communication

and the chain of command which provides sector and divisional

commanders with information as to the location of resources during

an incident.7

7.2 The ad hoc application of technologies and systems without

significant consideration of their part or role in an overall

emergency information management system, and without

integration with other technologies, will most likely result in

additional complexity and limited benefits. For example, Global

Positioning Systems (GPS) could be utilised in conjunction with a

map book but it would be of little use for tracking purposes without

further integration.8 Similarly, Automatic Vehicle Location (AVL)

solutions are a useful tool, however, there are limits to their

usefulness if they are not based on appropriate data and integrated

4 Griffiths Ex 24, WIT.018.001.0001, [18]-[27] 5 Emergency Services Communications Strategic Framework Ex 867, DOJ.001.005.0159 6 Lloyd Ex 869, WIT.3028.001.0070, [23] 7 Slijepcevic T18187:31-T18188:30

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with other operational information to assist with informed decision making.9

7.3 Short term technological solutions come with their own dangers and

costs including the requirement to retrain individuals, and replace

technology that will be superseded in the medium to long term.10

7.4 Care needs to be taken that any resource management and

tracking systems that are procured by the State in the future can be

incorporated and integrated into existing and future systems, such

as CAD.11 Further, any systems purchased should relate to

identified day-to-day business needs including the ability to respond

to a range of hazards, and not only bushfires.12

7.5 An integrated approach to utilising technology, including GPS,

across agencies reduces the risk that systems and processes can

become too complicated and can distract from the core task. Any

application of technology should be uniform, simple to use and

consistent across the emergency services organisations (ESOs)

where appropriate. Ideally, any application of an IT solution to

assist in resource tracking must require little or no intervention by

personnel. The simpler the system, the more likely that it will be

utilised and result in tangible benefits.13

Response to submissions of Counsel Assisting

8. The State notes the submissions of Counsel Assisting in relation to tracking

of resources at the Churchill fire at [1.4] and [1.8]. The State repeats the

submissions it made in relation to the Churchill fire. In particular, the State

notes that the Operations Officer was not asked about the information in

CFA’s IMS or DSE’s IRIS regarding resources deployed. There was also

evidence that the Deputy Planning Officer (who was not called to give

8 Corbett Ex 874, WIT.3004.043.0298, [7]-[8] 9 Corbett Ex 874, WIT.3004.043.0298, [65] 10 Corbett T18233:22-T18233:31 11 Slijepcevic Ex 872, WIT.3024.006.0113, [16]; Slijepcevic T18195:25-T18195:27; Lloyd Ex 869, WIT.3028.001.0070, [11] 12

13

Lloyd Ex 869, WIT.3028.001.0070, [11] Corbett Ex 874, WIT.3004.043.0298, [68]

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evidence) was monitoring resources.14 There is no evidence to support the

contention by Counsel Assisting that there was no consideration by the IMT

of the redeployment of resources under Mr. Woods’ command.15 The

evidence before the Commission does not support a finding that there was

any confusion regarding the identity, location or roles of those on the

fireground or within the IMT. The evidence does not support any finding that

the absence of a written organisational chart or resources list had any

impact on the management of the fire, or caused any confusion about the

identity, location and roles of the personnel on the fire ground. It should also

be acknowledged that the Incident Controller, Mr. Lockwood, was asked

whether the absence of a resources list hindered his ability to control

resources on the fire ground, to which he replied ‘No’.16

9. The State notes the submissions of Counsel Assisting in relation to the

deployment of resources at the Murrindindi fire at [1.5]. The State repeats

the submissions made in relation to the Murrindindi fire as to the integration

of the resources of the two agencies during the initial attack phase.17

10. The State also wishes to clarify the following matters raised in the

submissions of Counsel Assisting:

10.1 It is inferred that the Regional Emergency Coordination Centres

(RECCs) were reliant on whiteboards for tracking resources.18 Mr.

Corbett’s evidence refers to the use of CAD and IMS to track

resources at RECCs.19

10.2 Counsel Assisting state that it is standard practice within the CFA to

track the movement of resources on the fireground via radio

14 Submissions of the State on the Churchill Fire RESP.3000.005.0075, [58]; Gillham Ex 395, WIT.3024.004.0069, [60] 15 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.8] 16 Submissions of the State on the Churchill Fire RESP.3000.005.0075, [5], [58], [110] 17 Submissions of the State on the Murrindindi Fire RESP.3000.005.0112 [34]-[35], [46] [189] 18 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.2(b)] 19 Corbett Ex 874, WIT.3004.043.0298, [19], [22]

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communications.20 It should be noted that radio communications

are also recorded in CAD.21

10.3 Counsel Assisting state that Operations Officers are charged with

transmitting important safety information to crews through the chain

of command.22 It should be noted that in larger fires the Operations

Officer will be responsible for strategic positioning of resources.

The State submits, however, that division and sector commanders

will be responsible for the tactical positioning of those resources at

the fireground. It is not solely the Operations Officer who is

responsible for the deployment of resources.

10.4 It is not correct to say that the whereabouts of CFA resources

deployed at incidents are not advised up the chain of command.23

The status of resources, whether en route or in attendance, is

available to view in IMS up the chain of command. ESTA and/or

CFA radio networks can provide immediate state-wide

communications to all CFA brigades, Operational Managers, Duty

Officers and individuals.24 DSE staff obtain information about the

status of CFA resources from CFA staff within the IMT.

10.5 The State notes the submissions of Counsel Assisting in relation to

the fitting of all the firefighting appliances used by Hancock Victoria

Plantations (HVP) with GPS tracking equipment.25 The State

submits that it is not reasonable to draw a comparison between

HVP and the CFA. The CFA has over 3000 appliances compared

to the 64 under the control of HVP. The logistical and financial

challenges to CFA in installing GPS equipment to all its appliances

are considerably greater. Care must also be taken to ensure that

sufficient system and network capacity is available to support a

20 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.2(c)]

Corbett Ex 874, WIT.3004.043.0298, [31] 21 22 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.3] 23 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [1.7] 24 Corbett Ex 874, WIT.3004.043.0298, [32] 25 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [2.2]

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significant increase in the numbers of vehicles and resources being tracked.26

10.6 The reference to DSE aircraft at [2.4] should refer to Aircraft

managed by the State Aircraft Unit.

10.7 At [2.7] Counsel Assisting refer to the fact that the CFA has not

attempted to standardise the use of GPS units by its brigades and

that it is undesirable for there to be a proliferation of different

brands and models of units.27 However, the CFA has developed

standards for the purchase of GPS units.28 It was the evidence of

Mr. Corbett that as long as the GPS has the basic output data it

was appropriate and could be used.29 Mr Mark Garvey also gave

evidence that most GPS units have standard outputs.30 The State

notes that it supports proposed recommendation two of Counsel

Assisting in relation to mapping, and in particular, the provision of

guidance to CFA personnel as to the purchase and configuration of

GPS units.31

Response to proposed recommendations

Proposed recommendations 1 and 2

1. By 31 December 2010, the CFA conduct an audit of its brigades to

determine which firefighting resources are fitted with Global Position

System (GPS) and/or Automatic Vehicle Locator (AVL) units and the

make and model of each such unit.

2. Where a CFA brigade installs such equipment in the future, it should

inform the relevant CFA regional office of the details.

11. The State supports proposed recommendations 1 and 2 of Counsel

Assisting.

26 See Lloyd Ex 869, WIT.3028.001.0070, [19] 27 Systemic Issues - Resource Management and Tracking - Submissions of Counsel Assisting SUBM.507.001.0001, [2.7] 28 Corbett Ex 874, WIT.3004.043.0298, [80] 29 Corbett T18229:24-T18229:27 30 Garvey T16811:12-T16811:20 31 Submissions on Mapping RESP.3000.006.0115 at 0121

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Proposed recommendation 3

3. By 30 June 2012, the CFA ensure that appropriate GPS and AVL

equipment is installed in all its firefighting resources.

12. The State supports in principle proposed recommendation 3. The State

accepts that it is beneficial to have the capacity to track CFA firefighting

resources.

13. However, the State:

13.1 Considers that the reference to ‘all firefighting resources’ may be

too broad given that personnel are embraced in the term

‘firefighting resources’, which does not seem to be the intention of

Counsel Assisting.

13.2 Submits that the technology to be applied to resource tracking

should not be confined to GPS and AVL equipment, as better

technological solutions may be available.

13.3 Notes that a distinction needs to be made between what is required

purely for tracking purposes (safety and duress situations) and

what is required to meet individual agency business requirements

as part of an overall integrated system. These issues are

components of the Roadmap and Framework which are in evidence

before the Commission.

13.4 Notes that AVL requires a network to transmit GPS/AVL data as

well as a means to interpret that data onto and to translate that data

into the resource mapping system to make it both meaningful and

useful. AVL is not a useable product until all of these elements are

in place. Without the ability to display information received from the

tracking device at a remote location, fitting AVL units to appliances

would be a pointless exercise. To assist in operational decision

making, all operational information (prevention, preparation,

response and recovery) must be readily available through a holistic

emergency management information system which would include

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resource management and tracking.32 Therefore, while it might be

relatively easy to fit an AVL and GPS unit to all appliances, this

does not constitute an integrated resource tracking solution.33

13.5 Notes that other agencies, including other firefighting agencies

such as DSE, may also need to have their firefighting resources

tracked. The Roadmap and Framework represent an emergency

sector-wide multi-agency approach. Other agencies, including other

firefighting agencies such as DSE, will also need to have their

resource management and tracking needs met through this agreed

approach. The interoperability of such systems must be carefully

managed.

13.6 Does not accept 30 June 2012 as the relevant timeframe for one

element of a much larger and more complex project. The process

for identifying and procuring the appropriate systems will be

undertaken through the Roadmap and Framework. The proposed

timeline for this process matches a carefully planned consultation,

analytical and commercial program. To accept the 30 June 2012

date may adversely affect the suitability of the solutions identified

and may fail to meet the requirements of the CFA and other

agencies.

14. GPS and AVL technology is a small component of resource tracking which

in turn is a component of broader emergency information management

requirements. It is important to emphasise that GPS and AVL may not be

the complete answer to issues raised concerning the location of vehicles

and crews under duress and resource tracking. There are issues with the

use of this technology including:

14.1 Consideration of whether a signal can be transmitted properly,

whether there is an information management system to receive the

AVL signal and whether there are processes in place to be aware

that the vehicle and crew is under duress in the first place.34

32

33 34

Corbett Ex 874, WIT.3004.043.0298, [6] Corbett Ex 874, WIT.3004.043.0298, [76]-[77] Corbett T18224:15-T18224:21

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14.2 Not all current firefighting resources could necessarily support GPS

or AVL devices.

14.3 That where vehicle updates are regularly required, the data

communications needed for a connected radio network become

very demanding and networks can become easily congested. Care

must be taken to ensure that sufficient system and network

capacity is available to support any increase in the number of

vehicles or resources being tracked.35 There may be critical safety

implications associated with insufficient network capacity.

Therefore, adoption of these technologies needs to be part of a

whole-of-system solution, with the requisite analysis of

consequential changes, requirements, technology and hardware.

14.4 3G mobile data public networks are not a reliable option for

emergency services agencies as it is likely that at the time that the

AVL service is most needed it could be unavailable.36 While

reserving some mobile capacity on public networks for ESOs may

be explored, this is still based on the premise that the network will

be available during an emergency.37

14.5 While an AVL unit will transmit the location of an appliance this

information is of limited utility without full integration with other

emergency information.

15. The radio replacement projects being undertaken by DSE and CFA will

ensure that new digital radio terminals will be fitted to all CFA and DSE

appliances.38 The radio replacement project will provide significant benefits

including a built in GPS that will provide the necessary data to inform

emergency information management systems including AVL and an

automatic press button capability for red flag warning acknowledgements

and 'crew under duress' messages.39 Therefore the radio terminal hardware

element of an AVL solution is already funded for DSE and CFA.

Lloyd Ex 869, WIT.3028.001.0070, [19] Lloyd Ex 869, WIT.3028.001.0070, [20] Lloyd Ex 869, WIT.3028.001.0070, [20] Slijepcevic T18192:18-T18192:23; Slijepcevic Ex 872, WIT.3024.006.0113, [69] Corbett Ex 874, WIT.3004.043.0298, [79]

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16. It is likely that resource management and tracking through GPS technology

will become the dominant AVL technology used by ESOs across the State in

the foreseeable future. An important residual risk facing the State is not the

GPS solution itself but rather the interoperability of the system across

ESOs.40 The Roadmap and Framework are designed to mitigate that risk.

17. The complexities and costs associated with AVL and GPS technology are

considerable given the impact on communication networks, in-vehicle

installations and support and the need for inter-agency management

operations and resource dispatch. Therefore, a co-ordinated approach is

required by the State to ensure that technology needs are adapted and

integrated to meet the overall business needs of the various ESOs within the

limitations of technology available.41

18. A major focus of the research currently being undertaken by Emergency

Services Policy and Support in relation to the viability and expansion of AVL

is the critical requirement that any AVL system needs to be capable of

interfacing with a range of designated data systems in multiple agencies,

government departments and other organisations. Any available GPS and

AVL technology needs to be adapted and integrated to meet the overall

business needs of the various ESOs and where appropriate a standard or

standards need to be determined.42 These issues will be addressed in

accordance with the Roadmap and the Framework.

19. Any decision to expand the use of AVL and GPS requires careful

consideration of organisational priorities and the availability of funding either

internally or otherwise. The Budget process is a competitive process which

reflects the fact that the State has a limited pool of funds to spend. The

State will determine the overall level of expenditure and the amounts to be

allocated to competing priorities.43

20. The State would support an alternative recommendation:

The State ensure, through the agreed approach to planning and

providing integrated multi-agency emergency services

communications outlined in the State’s Emergency Services

Lloyd Ex 869, WIT.3028.001.0070, [21] Lloyd Ex 869, WIT.3028.001.0070, [22] Lloyd Ex 869, WIT.3028.001.0070, [14]

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Communications Strategic Framework and Roadmap, that

hardware for tracking and managing appliances is included in

appropriate CFA operational appliances dispatched to bushfires.

KERRI JUDD

MARITA FOLEY

Counsel for the State of Victoria

JOHN CAIN

Victorian Government Solicitor

14 May 2010

43 Lloyd Ex 869, WIT.3028.001.0001, [30]-[31]

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