About OBRM’s planned burn breach assurance function
The Office of Bushfire Risk Management (OBRM) is responsible for ensuring that FFMVic planned burns that breach the control line or are declared a bushfire are appropriately investigated and opportunities for continuous improvement proactively identified and implemented. In doing so, OBRM provides assurance that FFMVic’s systems and processes for delivering planned burns are safe and effective.
In performing this role, OBRM ensures its assurance activities uphold the principles of the Inspector-General for Emergency Management’s (IGEM) Assurance Framework for Emergency Management. The framework governs each of the core assurance elements of continuous improvement, collaboration and coordination, reducing burden, and adding value.
This is the third year that reporting of breaches of FFMVic planned burn control lines, investigations and assurance activities, and progress in implementing any recommendations from previous breaches have been included in this report.
What is assurance?
Assurance is an expression or statement designed to increase the confidence of the government, the sector, and the community in the ability of systems and processes to achieve intended outcomes. Assurance encompasses the identification and management of risks that may hinder the achievement of outcomes and objectives.
2023-24 breaches of planned burn control lines
For the period 1 July 2023 to 30 June 2024, FFMVic led and supported the conduct of 316 planned burns treating a total of 122,291 hectares.
In this period, FFMVic notified OBRM that three planned burns had breached control lines, one of which was declared a bushfire. All of these breaches occurred during a 4-week period from late March to late April 2024. No other planned burns were declared as breaches or bushfires during this reporting period.
FFMVic investigated these three incidents with OBRM providing independent assurance that the investigations were robust and that risk treatment options to respond to investigation findings were designed to address causal factors and drive continuous improvement.
The investigations found that a range of causal factors contributed to the three breaches, including unpredictable weather (including un-forecast changes in windspeed and direction), and identified valuable improvement opportunities including in relation to monitoring for spot overs and contingency planning.
FFMVic's final investigation reports made 32 findings and proposed 27 treatment options to improve systems and processes to address the risks identified. Following an independent review, OBRM made an additional 9 recommendations relating to these incidents.
The implementation of management actions is now in progress. OBRM will monitor their implementation and report on progress.
Key insights across multiple planned burn breaches
In reviewing historic planned burn breach data, OBRM found that 90% of the Planned Burn program has historically been delivered in autumn and 96% of planned burn breaches (including those in 2024) occur in autumn.
The most common casual factor for planned burn breaches in recent years has been un-forecast weather conditions (particularly changes in wind speed and direction) resulting in increased fire behaviour.
These statistics highlight that while FFMVic delivers a year-round burn program, there is a narrow and shifting window of appropriate conditions in which the planned burn program can be delivered safely and effectively.
This highlights the significant challenge the sector faces in delivering the planned burning program under a changing climate.
Implementation monitoring of recommendations
OBRM monitors the implementation of approved FFMVic actions to address treatment options and recommendations resulting from the investigation of planned breach incidents and proactive reviews instigated to investigate possible systemic risks.
Monitoring implementation of treatment options associated with 2022–23 planned burn breaches
In 2022–23, FFMVic declared 3 planned burns in south-western Victoria as bushfires. While these burns were declared as bushfires, they were all contained within their control lines. No other planned burns were declared as breaches or bushfires during this reporting period.
FFMVic investigated the bushfires with OBRM providing independent oversight.
FFMVics final investigation report made 31 findings and recommended 13 treatment options to reduce the risk of future occurrences. There were no OBRM recommendations in relation to these incidents.
OBRM has independently assessed a recent FFMVic implementation update provided on management actions taken to address the 13 treatment options. OBRM acknowledges that 8 management actions have been completed, 5 management actions remain in progress and 1 new action has been developed to implement further improvements.
Continuous improvement actions have resulted in changes to the below.
Policy and Communication: Updated systems, processes and procedures ensuring roles and responsibilities are clear in Planned Burn Command, Control and Coordination doctrine.
Approval and Authorisation: New FFMVic Chief Fire Officer directives about planned burn approval sequences, authorisation expectations as well as reviews and upgrades of relevant doctrine to provide clarity around each stage of delivery for complex burns.
Crew Management and Tasking: New FFMVic Chief Fire Officer directives to highlight the importance of appropriate accreditations and qualifications ensuring appropriate coverage of skill sets are present during operations of multiple concurrent planned burns.
OBRM will continue to monitor the implementation of outstanding treatment options.
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