- Date:
- 23 Mar 2023
This second annual report provides an assessment of the second year of implementation progress of Victoria’s fire services reform (1 July 2021 – 30 June 2022). In this second year, the Fire Services Implementation Monitor (FSIM) assessed fire services reform implementation in Victoria by considering foundational Year Two to Five Fire Services Reform Implementation Plan (Year Two to Five Implementation Plan) actions and activities required for the reform to succeed.
Reform implementation activity should be built on a clear and agreed understanding of interoperable, complementary fire services to guide delivery in line with the intentions of the reform. However, agencies are yet to define complementary services, making it difficult to make consistent and principle-based decisions to complete key fire services reform actions. Agreeing on ‘why’ a specific agency is responsible for aspects of Victoria’s fire services will provide clarity and consistency as to how operational arrangements are finalised and can be used as a guide to finalise principles underpinning service delivery arrangements. Without this clarity, FSIM considers there to be a real risk that foundational agreements will remain outstanding at the end of the third year of reform and that other key pieces of work, including service delivery approaches, may be impeded.
In addition, as agencies move into the third year of reform implementation, ensuring clarity on how agencies are measuring their progress and effectiveness towards Year Two to Five Implementation Plan actions is fundamental. Defining these metrics will be a critical step for FSIM to assess the significant number of actions due in year three.
FSIM saw clear evidence that agencies continue to progress work against individual actions. However, at the completion of year two, progress was delayed for many actions and reform is behind the schedule outlined in the Year Two to Five Implementation Plan. As at 30 June 2022, the status of the 41 actions from the Year Two to Five Implementation Plan were as follows:
- 2 complete
- 9 progressing and on track
- 20 progressing and experiencing minor delays
- 6 progressing and experiencing significant delays
- 4 not yet commenced.
Within FSIM-defined key focus areas, this report focused on 29 of the 41 Year Two to Five Implementation Plan actions fundamental to the reform’s success. However, it should be noted that this report is based on activities undertaken in the 2021-22 financial year and the Country Fire Authority (CFA), Fire Rescue Victoria (FRV) and the Department of Justice and Community Safety (DJCS) may have already addressed some of the issues highlighted in this report or significantly progressed actions.
Foreword
I am pleased to table my second annual report as the Fire Services Implementation Monitor (FSIM).
In this second year, my assessment of fire services reform implementation in Victoria focused on delivering the foundational actions and activities needed for reform to succeed. Reform implementation activity should be built on a clear and agreed understanding of interoperable, complementary fire services to guide delivery in line with the intentions of the reform.
However, agencies are yet to define complementary services, making it difficult to make consistent and principle-based decisions to complete key fire services reform actions.
Year Two to Five Implementation Plan progress
Agencies are continuing to progress work against individual actions, and I provide a status update of all 41 actions in this report. I have also outlined the steps agencies have taken in this second year of reform implementation in my progress summaries of 29 actions that fall within my key focus areas.
Two actions were completed in my reporting period — actions 5.5. and 5.6 — both relating to fire services sustainability. In assessing the effectiveness of these two actions against their objectives, I found there are improvements to be made to data availability and data quality to improve agencies’ evidence base. I understand agencies are undertaking work to address these gaps, which, in addition to improving their respective evidence bases, should also inform upcoming, interrelated actions and help create a clearer picture of what sustainable fire services require.
I had consistent feedback via various channels on the impacts of secondment arrangements and industrial consultation requirements on delivering activities. For long-term reform success, both need to work effectively.
The reform is behind schedule. Issues such as pandemic restrictions, retrospective planning, and lengthy consultative processes have contributed to delays. However, as this is only the second year of a 10-year reform, there is time to address the issues identified in this report and maximise opportunities for future success.
Listening to those impacted by reforms
This year I talked to people working in the reformed systems about how reform has impacted their experience. I thank them for their valuable perspectives.
My year two report focuses on the locations and fire services cohorts I consider most affected. Recognition of these voices is crucial to formative assessment. I hope those who chose to engage with me and my office see themselves and their experiences reflected in the following report.
I committed to speaking to people within the Country Fire Authority (CFA) and Fire Rescue Victoria (FRV) from across the state. I met people emotionally connected to their work and sense of place, who have a genuine connection to their brigade or station and want the best outcome for Victoria’s fire services and the Victorian community.
From volunteers, I heard their brigade is their second family. It provides a place to gather and connect to their community. Many have done this for decades and often alongside multiple family generations, passionately supporting their community.
For career firefighters, serving at a station is a vocation providing a sense of purpose and belonging. It’s where they sleep, eat, and take pride in their efforts to protect the community.
These personal connections to a station or brigade have meant a sense of loss for some of those faced with changes brought about by reform, and I appreciate their participation, honesty, passion, and detailed reflections.
While it wasn’t possible to speak to every volunteer or career firefighter in Victoria, I heard many similar themes – particularly at co-located stations in Melbourne’s peri-urban fringe and major regional centres. Hearing like themes from those who engaged with me gives me confidence the issues in this report represent broader opportunities for improvement.
Strengthening reform implementation
I make four recommendations to strengthen Victoria’s fire services reform. All focus on identifying the underlying principles and additional governance arrangements needed to improve reform efficiency and understand effectiveness. They should also help support agencies to plan for and deliver sustainable, complementary fire services effectively.
In closing
I note that the timing of the Victorian Government election prevented Parliament from sitting in late 2022. Consequently, agencies may have already addressed some issues highlighted in this report or progressed activity significantly.
I want to thank CFA, Department of Justice and Community Safety (DJCS) and FRV for providing helpful and insightful evidence to drive this assessment and for their time and effort to support it. I particularly acknowledge career and volunteer firefighters’ ongoing dedication to serving the Victorian community.
Finally, I commend the efforts to date, but we still have plenty of work ahead.
Hon. Niall Blair
Fire Services Implementation Monitor
Executive Summary
This annual report of the Fire Services Implementation Monitor (FSIM) assesses the second year of the implementation of Victoria’s fire services reforms. The report covers reform implementation from 1 July 2021 to 30 June 2022.
The report delivers on FSIM’s obligations under section 131(1) of the Fire Rescue Victoria Act 1958 (FRV Act) to monitor and review the progress of the Country Fire Authority (CFA) and Fire Rescue Victoria (FRV) in carrying out the Year Two to Five Fire Services Reform Implementation Plan (Year Two to Five Implementation Plan).
The Minister for Emergency Services (the Minister) tabled the Year Two to Five Implementation Plan in Parliament in November 2021. The Year Two to Five Implementation Plan outlined 41 actions, recommended by the agencies and approved by the Minister, across five priority areas over four years of reform.
For this year two report, FSIM adopted a risk-based approach, assessing progress of 29 of the 41 Year Two to Five Implementation Plan actions that, if not implemented effectively, FSIM considers could cause the greatest risk to achieving reform outcomes and objectives as outlined in the 2017 Fire Services Statement (the Fire Services Statement) and the Year Two to Five Implementation Plan.
FSIM identified the 29 actions based on key findings made in Fire Services Implementation Monitor Annual Report 2020–21: Setting the foundations (FSIM’s Financial Year (FY) 2020–21 Annual Report), reform risks identified by the agencies through various governance oversight groups,1 and FSIM’s assessment of Year Two to Five Implementation Plan actions that best support embedding reform.
FSIM grouped the 29 actions into five key focus areas. The key focus areas summarise the context, scope, objectives, and broad issues impacting progress of the grouped actions and comprise:
- Complementary fire services
- Culture and diversity
- Fire services sustainability
- Governance
- Service provision. 2
Each key focus area contains specific lines of inquiry. A line of inquiry comprises a group of Year Two to Five Implementation Plan actions that have a shared overarching objective or purpose. The line of inquiry assesses both the progress of the actions and outlines opportunities and challenges, as identified by FSIM, for agencies in meeting the relevant objective.
This report includes:
- an overview of FSIM’s year two methodology and stakeholder engagement activities
- a progress summary for each of the 29 actions based on an information request to the agencies within the relevant lines of inquiry
- key findings in the relevant key focus areas and lines of inquiry and opportunities and challenges for the agencies to consider as they progress delivering on Year Two to Five Implementation Plan objectives
- an assessment of effectiveness on the two Year Two to Five Implementation Plan actions (actions 5.5 and 5.6) completed by the responsible agency during the reporting period.
For the two actions completed during the assessment period (actions 5.5 and 5.6 under the Year Two to Five Implementation Plan’s Priority Five: “Ensure the future sustainability of the fire services” workstream), FSIM requested information from CFA, Department of Justice and Community Safety (DJCS) and FRV to determine whether the output delivered on the action’s objective. FSIM defines effectiveness as an action having met its objective as set out in the Year Two to Five Implementation Plan with supporting evidence.
FSIM collected information throughout the year via multiple channels and stakeholders to inform the year two assessment. FSIM reviewed and analysed documents, attended events and meetings, and engaged staff and volunteers to collect information for this report.
FSIM also conducted a year two engagement program primarily focused on discussions with CFA members and FRV staff at selected co-located stations and peri-urban areas as FSIM considers this cohort particularly impacted by the reforms.
As such, the majority of staff who engaged with FSIM in FY 2021–22 were FRV Division B staff and CFA volunteers in co-located stations in peri-urban Melbourne and regional Victoria. FSIM acknowledges that, in electing to focus its year two consultation on co-located brigades, it has heard perspectives and issues that may not reflect the diversity of views across the fire services in Victoria. However, these targeted discussions informed a focused summary of the key issues in those areas most impacted by reform and FSIM considers reflecting those voices is a critical step to support staff and volunteers to continue to move forward constructively.
Structural elements influencing reform implementation
In undertaking its year two assessment, FSIM has observed two fundamental factors that impact both how agencies operate as organisations and how the agencies operate effectively within the reformed fire services model. These factors are the implementation of the secondment model and industrial consultation requirements.
The secondment model is a fundamental component of reform and must work effectively for the government to realise its vision for a modern, integrated and sustainable system that keeps Victorians safe. FSIM notes that, of the five Year Two to Five Implementation Plan actions that relate to secondment, two are reported as significantly delayed, two have reported minor delays and one is yet to commence. FSIM will continue to consider the impacts of the secondment model in year three through assessment of related Year Two to Five Implementation Plan actions.
CFA and FRV each have formal consultation obligations and both agencies engage with their respective stakeholders. However, the nature and impact of these obligations are very different in the two agencies. There is a further requirement for FRV to consult with the United Firefighters Union of Australia – Victoria Branch (UFU) and secure consensus via the Consultative Committee process prior to implementing any matter or change relating to the employment relationship of FRV employees.
In practice, this means that where both CFA and FRV settle on a position which impacts FRV employees, FRV must subsequently consult with and secure the agreement of its industrial partner via the Consultative Committee established under the Fire Rescue Victoria Operational Employees Interim Enterprise Agreement 2020 (FRV Operational Employees EBA). This consultation process contributed to delays in finalising some arrangements and presented a considerable challenge for agencies in committing to positions agreed in principle at executive level where there is a subsequent requirement to consult and seek agreement on those positions.
FSIM will continue to monitor consultation processes into year three, noting that effective consultation is a fundamental component to progress and finalise service delivery arrangements.
Year Two to Five Implementation Plan action status and assessment
Status of Year Two to Five Implementation Plan actions
The Year Two to Five Implementation Plan set out 41 actions to be delivered during the period November 2021 to 30 June 2025.3 ;The status of the 41 actions 4 ;reported to the Minister, via the DJCS-coordinated reporting process as of 30 June, 2022 is:
- two actions are complete
- nine actions are progressing and on track
- 20 actions are progressing and experiencing minor delays
- six actions are progressing and experiencing significant delays
- four actions have not yet commenced.
Many actions (13) did not meet their set completion dates outlined in the Year Two to Five Implementation Plan. Agencies must apply formally to the Minister for approval to adjust Year Two to Five Implementation Plan actions. At the end of the reporting period, FSIM had not received ministerially approved change requests with updated completion timelines for those actions. As such, the action completion timelines reported are reflective of the timelines in the Year Two to Five Implementation Plan.
FSIM Key focus area assessment
Complementary fire services
The complementary fire services key focus area outlines progress and challenges for agencies towards achieving the government’s vision for complementary fire services that are modern, integrated and keep Victorians safe.
FSIM finds that CFA and FRV are making strong progress towards providing more modern fire services; however, they face significant challenges in implementing a complementary approach to fire services delivery. FSIM identified three systemic issues that currently constrain delivery against key Year Two to Five Implementation Plan actions that need to be addressed to successfully progress reform. These systemic issues comprise:
- no agreed, shared definition of complementary fire services that is supported by documented and consistent principles
- ineffective collaboration between CFA and FRV at times
- absence of an overarching, empowered, strategic governance body with the authority and resources to address key challenges to reform progress.
FSIM notes that agencies have each progressed work to define how services are delivered and to establish principles to underpin many operational service delivery arrangements. However, there is a need for agencies to define and agree on what constitutes complementary fire services.
There is a role for an independent, strategically focused, empowered and resourced body to drive discussions and make strategic decisions where agencies cannot agree or are at an impasse. Without this, FSIM considers there to be a real risk that some Service Level Deed of Agreement (SLDA) schedules will remain outstanding at the end of the third year of reform and that other key pieces of work, including service delivery approaches, will be impeded where there is no clear and agreed definition of complementary fire services.
Improving culture and diversity
The culture and diversity key focus area outlines progress and challenges for agencies towards achieving the government’s vision to implement a cultural shift in the fire services, with a strong focus on valuing people and building a safe and respectful sector.
FSIM finds that FRV has made significant progress to develop and communicate its values and CFA is taking decisive action to transparently address cultural issues.
Valuing the work of volunteers and staff is underpinned by each agency’s values and culture – and more importantly, how those values and cultures are reflected in service delivery. Since the reform’s initiation, volunteers and staff continue to ‘get on with the job’, services continue to be delivered and FSIM notes that the agencies’ values are relatively aligned. However, the operating context and culture of how values are demonstrated in each agency differs and are further influenced by structural elements such as the secondment model and the co-located station arrangements. Operating in these different cultural contexts can bring challenges, particularly for those seconded staff operating across both agencies.
Sustainability of the fire services
This key focus area outlines progress and challenges for agencies towards achieving the Year Two to Five Implementation Plan’s Priority Five objective to ensure the future sustainability of the fire services.
FSIM finds that the majority of work to deliver the Year Two to Five Implementation Plan actions underpinning sustainable fire services into the future is either underway or completed as at 30 June 2022. This work is positive and FSIM recognises the significant effort of agencies in achieving this progress. However, there is still much to do to comprehensively define workforce costs, workforce and volunteer capability and capacity costs, cost pressures arising from secondment arrangements, and to calculate the cost of the full range of fire agencies’ service delivery demands.
Priority Five in the Year Two to Five Implementation Plan includes several complex strategic actions that are informed by or influence other Year Two to Five Implementation Plan actions. Future actions that inform the long-term sustainability of the fire services model (actions 5.7 and 5.8) are reliant on data, information, or progress from numerous activities outlined in the Year Two to Five Implementation Plan. FSIM considers that mapping these interdependent actions and milestones will support effective delivery of actions 5.7 and 5.8. This will ensure that the evidence base to deliver these actions (for example, understanding of costs of service delivery, asset management planning and costs, and costs associated with workforce and volunteer capabilities and development) is comprehensive and as accurate as possible.
Governance
The Governance key focus area outlines progress and challenges for agencies towards achieving the Year Two to Five Implementation Plan objective of an “effective and productive working relationship across the fire services and other emergency service agencies, building on the principle of interoperability”.
FSIM finds that CFA and FRV have made progress towards this objective; however, FSIM observes there is no overarching governance body with the membership, authority, and strategic direction to discuss and resolve fundamental barriers to completing actions.
References
[1] Joint governance arrangements for the Year Two to Five Implementation Plan comprise Heads of Agency Steering Committee (HoA), Fire Services Operations Committee (FSOC) and six sub-committees comprising: operational communications, community safety, training, infrastructure and protective equipment, specialist response, and doctrine.
[2] The service provision key focus area was a mechanism to assess progress and effectiveness of agencies in delivering against related actions and is captured in the various lines of inquiry.
[3] Some activities from the Victorian Government’s Year One Plan have been reframed in the Victorian Government’s Year Two to Five Implementation Plan. Appendix A of the Year Two to Five Implementation Plan provides an overview of the status of actions from the Year One Plan and how they align to the government’s reform priorities over a four-year period. The Year Two to Five Implementation Plan also includes new actions to reflect the government’s emerging reform priorities.
[4] Refer to Table 6 for individual Year Two to Five Implementation Plan actions’ status.
Recommendations
In the context of these findings from the key focus areas, FSIM provides the following four recommendations that FSIM considers fundamental to addressing key challenges to effective reform implementation, specifically the finalisation of agreements and work to support sustainable fire services.
This is a 10-year reform, and the majority of Year Two to Five Implementation Plan actions are yet to be completed. At the conclusion of this second year of reform FSIM notes that much progress has been made and embedding the reform continues. There are challenges that need to be resolved to complete key actions that are fundamental to reform success; however, FSIM has seen demonstrated commitment by CFA, DJCS and FRV to progress Year Two to Five Implementation Plan activity.
| Ref | Recommendations | |
|---|---|---|
| 1 | Complementary fire services | The Minister, in consultation with CFA, DJCS and FRV, should develop an agreed definition of complementary fire services, and how this translates to individual service delivery, underpinned by agreed principles to guide the finalisation of outstanding agreements |
| 2 | Complementary fire services |
The Minister should nominate an appropriately authorised, representative and accountable strategic governance body that:
|
| 3 | All ‘in progress’ actions | CFA and FRV should confirm relevant and appropriate performance measures to demonstrate progress of their Year Two to Five Implementation Plan actions towards their objectives |
| 4 | Fire services sustainability |
The Minister should request CFA, DJCS and FRV to convene a financial sustainability governance body to develop and agree on a project plan that clearly maps interdependent activities and key inputs (for example, initial funding plan actions, strategic workforce plan, CFA operating model, CFA seconded workforce capability and capacity requirements) impacting immediate (years three and four) and long-term funding requirements for CFA and FRV. This mechanism should discuss strategic fire services sustainability issues at a high level (excluding confidential financial data relevant to each individual agency) to understand and resolve strategic interdependent issues and identify opportunity for efficiencies. This plan could include:
|
Glossary
| ACFO | Assistant Chief Fire Officer |
| BA | Breathing apparatus |
| CAoV | Country Area of Victoria |
| CEO | CFA Chief Executive Officer |
| CFA | Country Fire Authority |
| CFAI | Centre for Public Service Excellence Commission on Fire Accreditation International |
| CO | CFA Chief Officer |
| Co-located stations | For the purposes of this report, co-located stations refer to those stations which were formerly CFA career and integrated stations |
| COVID-19 | Coronavirus |
| CSBA | Community Safety Building Authority |
| DEBRiS |
Decontamination, Exit, Breathing Apparatus Service Rehab and Staging |
| Division A5 | Former MFB staff managed under Part A of the Fire Rescue Victoria Operational Employees Interim Enterprise Agreement 2020 |
| Division B5 | Former CFA staff covered under Part B of the Fire Rescue Victoria Operational Employees Interim Enterprise Agreement 2020 |
| DJCS | Department of Justice and Community Safety |
| EBA | Enterprise Bargaining Agreement |
| EMV | Emergency Management Victoria |
| Fire Services Statement | 2017 Fires Services Statement |
| FSPL Act | Fire Services Property Levy Act 2012 |
| FRB | Firefighters Registration Board |
| FRV Commissioner | Fire Rescue Commissioner |
| FRV | Fire Rescue Victoria |
| FRV Act | Fire Rescue Victoria Act 1958 |
| FRV ELT | Fire Rescue Victoria Executive Leadership Team |
| FRV Operational Employees EBA |
Fire Rescue Victoria Operational Employees Interim Enterprise Agreement 2020 |
| FSIM | Fire Services Implementation Monitor |
|
FSIM’s FY 2020–21 Annual Report |
Fire Services Implementation Monitor Annual Report 2020-21: Setting the foundations |
| FSOC | Fire Services Operational Committee |
| FTE | Full-time equivalent |
| FY | Financial year |
| GARS | Greater Alarm Response System |
| HAZMAT | Hazardous materials |
| HoA | Heads of Agency Steering Committee |
| HR | Human Resources |
| ICT | Information communications technology |
| IT | Information technology |
| IPs | Interoperability procedures |
| JSOPs | Joint Standard Operating Procedures |
| MFB | Metropolitan Fire Brigade |
| Minister | Minister for Emergency Services |
| MoU | Memorandum of Understanding |
| OH&S | Occupational health and safety |
| OIC | Officer in Charge |
| PAD | Practice Areas for Drills |
| PPC | Personal protective clothing |
| PTA | Professional, technical and administrative |
| SLDA | Service Level Deeds of Agreement |
| Step-up | The term “step-up” refers to occurrences when FRV staff are called to an incident in regional Victoria and replacement support then comes from another FRV station or district. The term step-up is used interchangeably with move-up. |
| Tenancy Agreement | The Lease and Licensing Agreement for the 34 co-located stations6 |
| UFU | United Firefighters Union of Australia – Victoria Branch |
| Vacancy and relief |
The Secondment Agreement relates to various categories of staff seconded to CFA. For the purposes of this report, the terms ‘vacancy’ and ‘relief’ relate specifically to only Commander and ACFO positions seconded to CFA from FRV as defined under the Secondment Agreement. ‘Vacancy’ refers to the situation where a substantive Commander or ACFO position (as defined under the Secondment Agreement) does not have an FRV seconded staff member formally appointed to that role. ‘Relief’ refers to the situation where a Commander or ACFO seconded to CFA is absent from their substantive position (for example, on extended leave) and FRV is required to provide a suitably qualified employee to backfill the position. |
| VFBV | Volunteer Fire Brigades Victoria |
| VSP | Volunteer Support Program |
| Year One Plan | Minister for Emergency Services' Year One Fire Services Reform Implementation Plan (2020 to 2021) |
| Year Two to Five Implementation Plan | Minister for Emergency Services' Year Two to Five Fire Services Reform Implementation Plan, November 2021 |
References
[5] FSIM uses the terminology Division A and Division B throughout this report in place of other terminology (such as “former MFB” and “former CFA” operational staff). Division A and Division B terms were commonly used throughout FSIM engagement, reflect the current terminology used by career firefighters, and are consistent with the terms used in the current FRV Operational Employees EBA.
[6] There are 33 CFA brigades at sites that are now operated by FRV and one co-located site (Lara) where CFA retains the asset and FRV is the tenant.