Victorian Emergency Management Strategic Action Plan 2022–25 Progress Report 2023
Victorian Emergency Management Strategic Action Plan 2022–25
Progress Report 2023
incorporating
Emergency Management
Planning Assurance Report
This report includes both the Victorian Emergency Management Strategic Action Plan 2022–25 – IGEM Progress Report 2023 (which starts on page 3) and the Emergency Management Planning Assurance Report 2023 (which starts on page 95)
Publication information
The Inspector-General for Emergency Management acknowledges and respects Victorian Traditional Owners as the original custodians of Victoria’s land and waters, their unique ability to care for Country and deep spiritual connection to it
IGEM honours Elders past and present whose knowledge and wisdom has ensured the continuation of culture and traditional practice.
Authorised and published by the Victorian Government, 1 Treasury Place, Melbourne. September 2024
Unless indicated otherwise, this work is made available under the terms of the Creative Commons Attribution 4.0 International licence. To view a copy of this licence, visit creativecommons.org/licenses/by/4.0
It is a condition of this Creative Commons Attribution 4.0 International Licence that you must give credit to the original author who is the State of Victoria.
If you would like to receive this publication in an alternative format telephone (03) 8684 7900 or email igem@igem.vic.gov.au
Inspector-General for Emergency Management GPO Box 4356, Melbourne, Victoria 3001
Telephone: (03) 8684 7900
Email: igem@igem.vic.gov.au
This publication is available in PDF format on igem.vic.gov.au
This page left intentionally blank
Acronyms and abbreviations
AFAC Australasian Fire and Emergency Services Authorities Council
AFDRS Australian Fire Danger Rating System
AIIMS Australasian Inter-service Incident Management System
ESTA Emergency Services Telecommunications Authority
FMD foot-and-mouth disease
FRV Fire Rescue Victoria
FSIM Fire Services Implementation Monitor
ICC Incident Control Centre
IDC Interdepartmental Committee
IGEM Inspector-General for Emergency Management
IMT Incident Management Team
LGBTQI+ Lesbian, Gay, Bisexual, Transgender, Queer, and Intersex
LGV Local Government Victoria
LPHU Local Public Health Unit
LRAP Learning Reform Action Plan
LSV Life Saving Victoria
MAV Municipal Association of Victoria
MEMP Municipal Emergency Management Plan
MEMPC Municipal Emergency Management Planning Committee
MER Monitoring, Evaluation and Reporting
MNHP Mobile Network Hardening Program
MSAR Marine Search and Rescue
NBN National Broadband Network
NEMA National Emergency Management Agency
NHRA Natural Hazards Research Australia
OBRM Office of Bushfire Risk Management
PSMB Public Safety Mobile Broadband
RMR Regional Mobile Radio
SAP Strategic Action Plan
SCC State Control Centre
SCRC State Crisis and Resilience Council
SEMC Security and Emergency Management Committee of Cabinet
SEMP State Emergency Management Plan
SEMPC State Emergency Management Planning Committee
SHEMOG State Health Emergency Management Oversight Group
STAND Strengthening Telecommunications Against Natural Disasters
VAGO Victorian Auditor-General's Office
VCDI Victorian Centre for Data Insights
VEOHRC Victorian Equal Opportunity and Human Rights Commission
VERA Victorian Emergency Risk Assessment
VicPol Victoria Police
VICSES Victoria State Emergency Service
VIFM Victorian Institute of Forensic Medicine
VPF Victorian Preparedness Framework
VPP Victorian Planning Provisions
VPS Victorian Public Service
VRN SDM Victorian Radio Network Service Delivery Model
Executive summary
The Victorian Emergency Management Strategic Action Plan
The Victorian Emergency Strategic Action Plan (SAP) contains strategic priorities and related actions led by departments and agencies to support a sustainable and efficient emergency management system for Victoria.
The SAP is updated each year by the State Crisis and Resilience Council (SCRC) to remain relevant in the face of emerging opportunities and challenges for the state's emergency management sector.
Published SAPs are available at emv.vic.gov.au/strategic-priorities.
The Inspector-General for Emergency Management
The Inspector-General for Emergency Management (IGEM) provides assurance to the Victorian Government and the community on the state's emergency management arrangements and fosters their continuous improvement.
IGEM reports annually to the Minister for Emergency Services (the minister) under section 64(1)(e) of the Emergency Management Act 2013 (the Act) on the implementation of the SAP.
IGEM's SAP progress reports summarise recent implementation activity and assess whether each action is complete, closed (partially implemented or not implemented) or remains in progress.
This report
This is IGEM's seventh SAP progress report. It includes:
IGEM's first assessment of the 36 actions in SAP 2022–25, covering the period July 2022 to June 2023
IGEM's final assessment of nine actions in SAP Update #4, covering the period January 2022 to June 2022.
IGEM finds that:
five SAP 2022–25 actions are complete, one is closed, 29 remain in progress, and one is yet to commence
six SAP Update #4 actions are complete and three are closed.
Tables 1 (page 10) and 2 (page 19) provide details of IGEM's evidence-based findings and status assessments for each action.
IGEM has provided this report to SCRC for noting and to the minister for approval to publish on IGEM's website (igem.vic.gov.au).
Strategic Action Plan 2022–25
Table 1: Summary of SAP 2022–25 implementation progress for the period July 2022 to June 2023
ACTION NUMBER ACTION
Priority One – Work with Victorians to understand and reduce the risk of emergencies
1.1 Implement the Australian Fire Danger Rating System (AFDRS) in Victoria EMV
1.2 Implement the Victorian Emergency Risk Assessment (VERA) Project
1.3 Improve cyber support for Victoria's critical infrastructure and essential services
1.4 Enhance climate-related hazard and risk assessment capabilities to inform water infrastructure planning, design and investment decisions
1.5 Enhance bushfire risk reduction on public and private land through 'Safer Together' and implementing a Whole of Sector Bushfire Strategy
1.6 Support individuals, schools and communities with the tools and information they need to understand and take action to reduce risks
1.7 Review fuel management performance targets through the Office of Bushfire Risk Management (OBRM)
1.8 Update planning schemes to include new provisions aimed at reducing urban heat exposure
1.9 Enhance engagement and partnerships with community and sector to increase trust and confidence and to enable effective, targeted public health behaviour change interventions
EMV
DGS (previously DPC)
June 2023 IGEM considers that this action has been implemented. Complete
June 2023 (revised to December 2023 in SAP 2023–26)
October 2023 (completion date currently being revised)
DEECA (previously DELWP) 2026
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM notes the planned change in approach to implementing this action. In progress
IGEM notes that this action has yet to commence. Yet to commence
DEECA (previously DELWP)
DE (previously DET)/CFA/VICSES (transfers to CFA in SAP 2023–26)
June 2023 (revised to March 2024 in SAP 2023–26)
June 2023 (revised to June 2025 as SAP 2023–26 Action 3.3)
DEECA (previously DELWP)
DTP (previously DELWP)
June 2023 (revised to August 2024 as SAP 2023–26 Action 1.6)
June 2023 (revised to June 2024 in SAP 2023–26)
DH 2025
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised. In progress
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM considers that this action is progressing satisfactorily. In progress
2.1 Deliver enhanced information and warnings capability to the sector and community to improve emergency preparedness, response and recovery
2.2 Make better use of public health data to generate intelligence and agile decision making and ensure that the investment delivers outcomes that matter to Victorians
2.3 Ensure that the digital systems and technology are secure, fit-forpurpose and enable efficiency and effectiveness
2.4 Upgrade VicTraffic to support transport users and emergency response units to move around the road network safely and confidently during an emergency
2.5 Enhance our data and analytics capabilities to improve emergency management decision making through the release of an Emergency Management Data Strategy, in partnership with VCDI
2.6 Implement the sector's Emergency Management Operational Communications Program, with the longer term aim of transitioning communications to a national Public Safety Mobile Broadband service to improve emergency response and sector interoperability
EMV
DTP (previously DoT)
June 2023 (revised to August 2025 in SAP 2023–26)
EMV
April 2024 (revised to June 2024 in SAP 2023–26)
IGEM notes progress on this action and that the planned completion date has been revised.
IGEM considers that this action is progressing satisfactorily.
EMV
June 2023 (revised to 2027 in SAP 2023–26)
IGEM considers that this action has been partially implemented with plans in place beyond the scope of SAP 2023–26 to deliver further activity.
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised.
IGEM notes progress on this action and that the planned completion date has been revised.
December 2025 (continues as SAP 2023–26
Action 2.3)
IGEM considers that this action is progressing satisfactorily. In progress
3.1a Improve understanding of people's behaviour in emergencies to promote better community and business outcomes
3.1b Build cross sectoral partnerships and leverage the learnings from COVID-19 and behavioural insights to influence specifically identified community segments towards healthier behaviours
3.2 Improve the resilience of communications networks and communities in bushfire and disaster-prone areas
3.3 Develop a shared responsibility framework for people most at risk in emergencies
3.4 Deliver the Emergency Management Plan Exercising Project
3.5 Promote improvements to the Disaster Recovery Funding Arrangements (DRFA)
DJSIR (previously DJPR)
December 2023 (revised to March 2024 as SAP 2023–26 Action 3.1)
June 2023 (revised to June 2024 as SAP 2023–26 Action 3.2)
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised.
IGEM notes progress on this action and that the planned completion date has been revised.
progress
progress
DGS (previously DJPR)
June 2023
DFFH
EMV/Victoria Police/agencies and local government (transfers to EMV in SAP 2023–26)
EMV (transfers to DJCS in SAP 2023–26)
4.1 Complete the Emergency Management Operating Model Review EMV
4.2 Build a sustainable, agile, and capable State Control Centre (SCC) workforce
4.3 Develop learning and development opportunities focusing on introductory and leadership capabilities that meet the needs of the EM workforce
EMV with departments and agencies (transfers to EMV in SAP 2023–26)
EMV with departments and agencies (transfers to EMV in SAP 2023–26)
August 2022 (revised to December 2023 as SAP 2023–26 Action 3.9)
June 2023 (revised to June 2024 in SAP 2023–26)
As determined by the Commonwealth Government (confirmed as June 2024 in SAP 2023–26)
June 2023
June 2023 (revised to June 2024 in SAP 2023–26)
2027
IGEM considers that this action has been implemented. Complete
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM considers that this action is progressing satisfactorily. In progress
IGEM considers that this action has been implemented.
IGEM notes progress on this action and that the planned completion date has been revised. In progress
IGEM considers that this action is progressing satisfactorily.
4.4 Implement the Aviation Strategic Action Plan
4.5 Develop and implement tangible activities in conjunction with the Municipal Association of Victoria (MAV), councils and EMV to support and build council capacity and capability in emergency management
4.6 Foster a resilient and fitfor-purpose public health workforce that supports system resilience and sustainability, building on learnings from COVID-19
4.7 Strengthen the culture and wellbeing across the workforce by improving diversity and tackling negative behaviours, and increasing collaboration between agencies
4.8 Support our volunteers with the training and equipment they need to keep our communities safe
DEECA (previously DELWP)/EMV June 2024 IGEM considers that this action is progressing satisfactorily. In progress
DGS (previously DJPR)/MAV June 2024
considers that this action is progressing satisfactorily.
considers that this action is progressing satisfactorily. In progress
EMV with emergency services organisations 2025
IGEM considers that this action is progressing satisfactorily. In progress
considers that this action is progressing satisfactorily.
5.1 Complete the emergency management governance review EMV December 2022 IGEM considers that this action has been implemented. Complete
5.2 Deliver reforms to Victoria’s Emergency Services Telecommunications Authority (ESTA)
5.3 Continue to strengthen, embed and operationalise fire services reform Plan.
DJCS / ESTA (transfers to DJCS in SAP 2023–26)
CFA / FRV (transfers to DJCS in SAP 2023–26)
December 2023 (revised to June 2025 in SAP 2023–26)
December 2025 (revised to June 2030 in SAP 2023–26)
IGEM notes progress on this action and that the planned completion date has been revised.
IGEM notes progress on this action and that the planned completion date has been revised to reflect the ten-year implementation timeframe of the fire services reform. In progress
5.4 Implement Emergency Recovery Victoria (ERV) as the dedicated and permanent entity responsible for state and regional recovery coordination
5.5 Deliver a legislative review of fuel management to support more effective planning and interoperability
5.6 Increase Victoria’s capability and capacity to manage large-scale, prolonged, complex biosecurity emergencies in the context of increasing threats from exotic plant and animal diseases
5.7 Deliver a sustainable and resilient health system that can scale quickly and act locally by connecting with all Victorian communities
ERV (previously BRV)
June 2023
IGEM considers that this action has been implemented.
DEECA (previously DELWP)/DJCS (transfers to DEECA and EMV in SAP 2023–26)
DEECA (previously DJPR)
July 2023 (revised to December 2024 in SAP 2023–26)
June 2024
IGEM notes progress on this action and that the planned completion date has been revised.
IGEM considers that this action is progressing satisfactorily.
progress
DH
June 2023 (revised to June 2024 in SAP 2023–26)
Overview of implementation progress for SAP 2022–25 actions1
IGEM notes progress on this action and that the planned completion date has been revised.
Priority One – Work with Victorians to understand and reduce the risk of emergencies
progress
Action 1.1 – Emergency Management Victoria (EMV) has led the implementation of the Australian Fire Danger Rating System (AFDRS) in Victoria, working with the Country Fire Authority (CFA). The AFDRS was introduced on 1 September 2022 to provide a more accurate and nationally-consistent system for calculating and communicating information about fire danger. EMV led the replacement and retrofitting of fire danger rating signs around the state and updated the VicEmergency app and website to align with the AFDRS. To support the rollout, EMV developed training and operational decision-making resources, and held information sessions and pre-season briefings for emergency management personnel. An EMVled evaluation of the AFDRS rollout was conducted in 2023 to guide preparation for the 2023–24 summer season.
Action 1.2 – EMV is leading the Victorian Emergency Risk Assessment (VERA) Review Project to provide a contemporary and systemic approach to identifying and mitigating emergency risks across Victoria. SCRC endorsed the VERA methodology in August 2023 and EMV has scheduled workshops in August and September 2023 to assess each in-scope emergency risk. EMV plans to submit an updated Emergency Risks in Victoria report to SCRC for endorsement later in 2023, to replace the current state emergency risk assessment.
Action 1.5 – The Department of Energy, Environment and Climate Action (DEECA) is leading work on a ten-year Bushfire Management Strategy to reduce bushfire risk in Victoria, building on the existing Safer Together policy. DEECA developed a draft strategy in partnership with sector stakeholders – this was made available for public consultation in July and August 2023. Following the incorporation of public feedback and further consultation with sector partners, DEECA plans to finalise the strategy by March 2024, supported by an implementation plan and a Monitoring Evaluation and Reporting Framework currently in development.
1 Overviews are not provided for Action 1.3 which is being re-scoped and Action 1.4 which is yet to commence.
Action 1.6 – The Department of Education (DE) and CFA have successfully trialled a new evidenceinformed bushfire education program for upper primary school students at two schools. DE advised that further classroom trials are planned for 2023 and 2024. The program is supported by three years of Australian Government and Victorian Government funding.
Action 1.7 – Fuel management targets help drive accountability and responsibility by providing transparent information about how effectively Victoria’s fuel management program is meeting its outcomes. The Office of Bushfire Risk Management (OBRM) within DEECA has consulted with stakeholders to develop a suite of updated fuel management target options. OBRM intends to present the target options to SCRC for endorsement and to Cabinet for approval to test the options through community and non-government stakeholder consultation. OBRM has also commenced the development of a roadmap to guide bushfire risk management by all organisations with fuel management responsibilities across public and private land in Victoria. OBRM intends to seek SCRC endorsement of the roadmap in June 2024.
Action 1.8 – The Department of Transport and Planning (DTP) is updating sections of the Victorian Planning Provisions to help mitigate urban heat impacts and ensure a consistent statewide approach to tree protection and planting in new developments across the built environment. DTP is also developing guidance to help developers, designers and local councils apply the relevant provisions. DTP intends to brief the Minister for Planning on this work by December 2023.
Action 1.9 – The Department of Health (DH) has worked with Victoria’s network of nine Local Public Health Units (LPHUs) to understand their communications functions and how to better co-design public health campaigns. Insights on how to work more effectively with LPHUs during emergencies will be implemented as part of the DH-led LPHU emergency management model of operations project. This is one element of the Strengthening Regional Emergency Management Capability and Resilience program DH set up following the October 2022 Victorian floods.
Priority Two – Strengthen our use of data, analytics and intelligence to improve decision making
Action 2.1 – EMV has designed and piloted an enhanced version of its VicEmergency app with improved features including the translation of real-time messages and warnings into Arabic and simplified Chinese, and improved screen reader accessibility. The enhanced app will be tested by target audiences prior to its release to ensure it meets their needs. EMV is also developing resources to inform the community about the Australian Warning System – a new national approach to warnings for bushfire, flood, severe weather, extreme heat, cyclones, and other hazards using a consistent set of icons. EMV has also started developing a roadmap for a new platform to replace the Emergency Management Common Operating Picture (EM-COP), an online platform that supports sector information sharing and the issuing of public information and warnings during emergencies.
Action 2.2 – The Department of Health (DH) has developed and deployed a range of Syndromic Surveillance System (SynSurv) modules for a number of public health risks. Syndromic surveillance involves rapidly acquiring and evaluating data from hospital emergency departments to provide early warning of possible public health risks. Rapid identification of these possible risks enables public health officials to put measures in place to prevent further illness. DH continues to develop further modules and enhance supporting systems and procedures.
Action 2.3 – DH advised that a departmental information and communications technology review was commissioned in late 2022 to identify best practice information technology requirements to improve the interface between DH digital surveillance and reporting systems. However, the review was concluded early with a limited scope due to changing department and government priorities. IGEM has assessed this action as closed (partially implemented), noting that this action does not continue in SAP 2023–26.
Action 2.4 – In March 2023 DTP published an updated version of the VicTraffic website, with improved site responsiveness, expanded search capabilities, location-based personalisation, and new filter options. The website upgrade is supported by DTP’s ongoing work across three other streams to support the delivery of enhanced road closure and disruption information to communities during emergencies.
Action 2.5 – Following research and consultation during 2022–23, EMV and the Victorian Centre for Data Insights developed an Emergency Management Data Strategy to support enhancement of the sector's data and analytics capabilities. SCRC endorsed the strategy in June 2023. Action 2.5 continues in SAP 2023–26 with a revised delivery date (2027) and scope focused on implementation of the strategy.
Action 2.6 – The long-term Emergency Management Operational Communications Program led by EMV delivers communications upgrades for response agencies that are contemporary, resilient, fit-for-
purpose and affordable. A highlight during 2023 was EMV’s delivery of the Victorian Radio Network Service Delivery Model (VRN SDM) Review to determine the preferred service delivery model for various state operational communications contracts beyond 2025–26. Following extensive consultation with agencies, in March 2023 the Emergency Services Leadership Group agreed to a preferred VRN SDM option for implementation. EMV also continues to progress the transition of Ambulance Victoria and DEECA onto the Regional Mobile Radio network under Stage 2 of the Digital Radio Upgrade Program.
Priority Three – Support communities to be prepared and recover well after emergencies
Action 3.1a – The Department of Jobs, Skills, Industry and Regions (DJSIR) is currently developing a Community Behaviour Framework to understand the food and grocery buying behaviours of Victorians in the context of emergencies. DJSIR intends to finalise the framework later in 2023. DJSIR is also developing an intervention designed to reduce the likelihood and impact of misinformation in emergencies.
Action 3.1b – DH has produced a Population Health Catchment Planning Framework to support LPHUs to lead the development of population health catchment plans. The catchment plans will identify opportunities to promote new and strengthen existing public health partnerships and promote health and wellbeing outcomes that matter to people, communities, and the environment. DH advised that the catchment plans have been submitted and are now being implemented with partner stakeholders.
Action 3.2 – The Australian Government’s Strengthening Telecommunications Against Natural Disasters (STAND) program aims to strengthen telecommunications resilience in socially and geographically isolated communities in bushfire and disaster-prone areas. Under Phase 2 of the Mobile Network Hardening Program (part of STAND), mobile carriers are delivering 132 resilience upgrades to Victorian localities, with 74 of the upgrades co-funded by the Victorian Government. The former Department of Jobs, Precincts and Regions engaged with the former Bushfire Recovery Victoria (BRV) and with EMV and the Emergency Management Commissioner (EMC) to identify Victorian communities of interest for inclusion in Phase 2. The Victorian Government completed its contracting requirements for Phase 2 in March 2023. The Australian Government advised the Department of Government Services (DGS), which assumed responsibility for this action in January 2023, that Phase 2 upgrades are planned for completion by December 2024.
Action 3.3 – In August 2022 SCRC endorsed a Victorian Shared Responsibility Planning Toolkit for People Most at Risk in Emergencies developed by the Department of Families, Fairness and Housing (DFFH). DFFH has since piloted the planning toolkit with key stakeholders and organised an independent evaluation report capturing the feedback from the pilot. The planning toolkit is underpinned by a foundational document that provides guidance to the sector on how to implement shared responsibility in practice, which has been provided to EMV.
Action 3.4 – EMV commenced the Emergency Management Plan Exercising Project in early 2022 to deliver four community-centred scenario exercises exploring catastrophic events, complex responses, and operations under the shared responsibility model. Two of the four multi-phase exercises have been completed – the Banyule Community Exercise (August-November 2022) and the Murrindindi Community Exercise (March-June 2023) – with the remaining two planned for completion by the end of June 2024.
Action 3.5 – EMV and the Department of Justice and Community Safety (DJCS) are improving Disaster Recovery Funding Arrangements support for councils, including the introduction of a new claims management system in July 2023 and increased funding for claims assessors. DJCS is also leading Victorian contributions to the national Disaster Recovery Funding Arrangements Review and the Independent Review of Commonwealth Disaster Funding, with a view to optimising funding arrangements.
Priority Four – Build a sustainable emergency management workforce that represents the people it serves
Action 4.1 – EMV led a review of the operating model for emergency management readiness and incident management and planned the implementation of proposals that seek to deliver a more secure, reliable, and efficient model for the core emergency management workforce. Building on work commenced in 2021, EMV delivered a final position paper to SCRC in November 2022 identifying proposals to be progressed. Following further sector consultation in the first half of 2023, EMV delivered a series of recommendations
and an implementation plan, which was endorsed by SCRC in August 2023. SAP 2023–26 includes an action focused on implementation of the operating model review (Action 4.1).
Action 4.2 – The State Control Centre (SCC) is Victoria's primary control centre for the management of emergencies. In May 2022 the Victorian Government approved ongoing funding for a dedicated workforce to ensure the SCC’s continued 24/7 functionality. In March 2023 the DJCS Secretary approved an ongoing resourcing model for the dedicated SCC workforce, although some delays have been experienced in recruitment. EMV is currently updating operational doctrine and developing an SCC workforce capability and capacity framework to support the dedicated workforce.
Action 4.3 – In September 2022 the Emergency Management Capability and Capacity Steering Committee (EMCCSC) endorsed a Learning Reform Action Plan (LRAP) developed by EMV to guide improvements to training and professional development for emergency management personnel. Since then, EMV has led the development of new learning courses and modules under the LRAP. From July 2023 the LRAP and multi-sector Incident Management Team (IMT) training transitioned into the Emergency Management Sector Training and Capability Development Model, funded by participating EMCCSC member agencies.
Action 4.4 – The Victorian Fire, Emergency and Land Management Aviation Strategic Action Plan 2021–2023 positions the sector to make effective use of the state’s aviation program. Three actions focused on governance and effective collaboration are now complete, with other actions on integrated capabilities and investment and innovation underway. DEECA expects the Aviation Strategic Action Plan to be implemented by June 2024.
Action 4.5 – This action builds on the Councils and Emergencies Project completed in 2021 under SAP Update #4 Action 4.2. DGS and the Municipal Association of Victoria (MAV) have undertaken a range of activity to support councils to undertake their emergency management responsibilities, including ensuring these responsibilities are appropriately expressed in the Roles and Responsibilities section of the State Emergency Management Plan (SEMP).
Action 4.6 – DH has increased its emergency management surge workforce capable of activation in response to rapidly evolving public health emergencies to 130 members. DH has launched and continues to develop a range of resources to support its operational and surge workforce staff, including a training pathway to build emergency management capability across the department. DH is operationalising the training pathway through a dedicated emergency management training program that launched in July 2023.
Action 4.7 – The Emergency Management Inclusion and Diversity Leadership Group has led a range of activity aimed at strengthening culture and wellbeing across the emergency management workforce. EMV and Parks Victoria ran a multi-agency Sponsorship of Diverse Talent Pilot Program matching women participants from across the emergency management sector with a leader from another sector organisation to support their growth, development, and progress in the sector. A second iteration of the program is being planned for late 2023. Other initiatives are underway to improve the long-term involvement and inclusion of First Nations peoples in sector organisations and develop a new maturity model to help identify strengths and gaps in diversity and inclusion across organisations.
Action 4.8 – In 2022–23 the Victoria State Emergency Service (VICSES) completed more than 3000 member skills assessments in relevant capabilities and has developed 2023–24 training calendars for its volunteers and employees. VICSES has provided IGEM with design and procurement documentation for the replacement of 21 heavy rescue trucks and seven medium rescue trucks. Condition assessments of all VICSES facilities are planned to commence in 2023–24. VICSES is supporting its volunteers to deal with complex people and behaviours through mental health and unit leadership training. An action plan to strengthen the prevention of and response to bullying, sexual harassment, discrimination, and victimisation is being finalised for implementation in 2023–24.
Priority Five – Strengthen governance arrangements to improve accountability, cooperation and participation
Action 5.1 – EMV led the Emergency Management Governance Review aimed at ensuring the emergency management framework provides clarity and certainty on how agencies and departments work together to respond to major emergencies. The review commenced in early 2021 in consultation with sector departments and agencies. In June 2022 EMV provided SCRC with proposals to address identified issues and areas for improvement. Following scenario testing with department and agency representatives to
refine the proposals, EMV developed the Emergency Management Governance Review Report. SCRC endorsed the report in February 2023.
Action 5.2 – The departments and agencies tasked with leading Victoria’s Triple Zero reforms – DH, DJCS, EMV and the Emergency Services Telecommunications Authority (ESTA) – have undertaken a range of foundational work on reform implementation. In August 2023 the Victorian Government introduced the Triple Zero Victoria Bill 2023 to Parliament. The Bill contains provisions for ESTA to become a new statutory body – Triple Zero Victoria – and contains strengthened governance measures. The Governor of Victoria gave Royal Assent to the Bill on 8 November 2023. IGEM is monitoring implementation of the reform recommendations under a separate assurance process and plans to deliver its first progress report to the Minister for Emergency Services in December 2023.
Action 5.3 – CFA and FRV continue to strengthen, embed and operationalise Victoria’s fire services reform by delivering actions in the Victorian Government’s Year Two to Five Fire Services Reform Implementation Plan May 2023 update (Year Two to Five Implementation Plan). The Fire Services Implementation Monitor (FSIM) provides the Victorian Government and community with independent evidence-based assessment of fire services reform implementation progress. IGEM understands that 13 actions were completed during 2022–23 and notes that FSIM is developing its 2022–23 annual report (to be tabled in Parliament) based on its monitoring and assessment of actions in the Year Two to Five Implementation Plan.
Action 5.4 – On 17 October 2022 BRV expanded its responsibilities and transitioned to Emergency Recovery Victoria (ERV). The transition establishes ERV as a permanent and dedicated recovery agency focused on building stronger and more resilient individuals, communities and regions through community recovery from all emergencies. ERV coordinates state and regional recovery efforts and state relief efforts, and works with all levels of government, businesses and not-for-profit organisations to ensure recovery enables people, places, and the environment to be stronger and more resilient after emergencies. Following the October 2022 Victorian floods, ERV led recovery support for affected individuals and communities and coordinated the 2022 Victorian Flood Recovery Clean-Up Program.
Action 5.5 – DEECA and DJCS are leading a review of the current fuel management legislative framework to enable more effective planning and delivery of bushfire management, support greater interoperability, and ensure all firefighters (including volunteers) have sufficient legal protections when carrying out fuel management. Building on a July 2022 discussion paper, targeted workshops were held to understand the challenges. DEECA and DJCS developed an issues paper that the Fuel Management Legislative Review Interdepartmental Committee endorsed in February 2023. This was followed by further sector consultation, including engagement with local councils in June 2023. A Local Government Reference Group has been set up for further consultation on the review.
Action 5.6 – Agriculture Victoria (AgVic) within DEECA is strengthening Victoria’s biosecurity system and supporting the mitigation of increasing biosecurity risks by implementing the Emergency Animal Disease (EAD) Preparedness Program. In October 2022 AgVic published the Victorian Government State Emergency Animal Disease Response Plan (EAD Response Plan), which outlines arrangements for the management of a major EAD emergency. AgVic has commenced an exercise program to test the EAD Response Plan and has identified potential sources of personnel within and outside the government workforce to ensure Victoria maintains capacity to respond to an EAD outbreak. AgVic also maintains scalable and flexible plant biosecurity responses, with a range of measures in place to support plant pest and disease preparedness.
Action 5.7 – DH led the development of two SEMP health sub-plans: the State Emergency Management Plan Health Emergencies Sub-Plan and the State Emergency Management Plan Viral (Respiratory) Pandemic Sub-Plan (both published in December 2022). In February 2023 DH established a State Health Emergency Management Oversight Group (SHEMOG) to provide departmental leadership and strategic guidance with respect to health emergency management. SHEMOG has developed a workplan setting out its initial priorities for 2023.
Strategic Action Plan Update #4 2019–22
To acquit its monitoring responsibilities, IGEM has included its final assessment of nine SAP Update #4 actions in this report.
IGEM finds that six SAP Update #4 actions are complete and three are closed – actions related to a Longterm Workforce Strategy, Volunteerism and Community Leadership, and the EM-COP Three Year Plan were not implemented as set out in SAP Update #4.
For some actions (both complete and closed), IGEM will continue to monitor implementation of related activity via its SAP or other implementation monitoring functions as described in this report.
Table 2: Summary of SAP Update #4 2019–22 implementation progress for the period January 2022 to June 2022
1 Introduction
The Victorian Emergency Management Strategic Action Plan
The Strategic Action Plan (SAP) contains actions led by departments and agencies to support a sustainable and efficient emergency management system for Victoria.
The SAP is updated each year to remain relevant in the face of emerging opportunities and challenges for Victoria’s emergency management sector.
The Strategic Action Plan 2022–25 (SAP 2022–25) is available at emv.vic.gov.au/strategicpriorities/strategic-action-plan-sap-2022-25.
SAP 2022–25 supersedes the Victorian Emergency Management Strategic Action Plan Update #4 2019–22 (SAP Update #4) which is available at emv.vic.gov.au/publications/victorian-emergency-managementstrategic-action-plan-sap-update-4-2019-22.
Section 2 of this report provides more information on the development of the SAP by Emergency Management Victoria (EMV) on behalf of the State Crisis and Resilience Council (SCRC) – Victoria's peak body advising the Minister for Emergency Services (the minister) on emergency management policy and strategy and its implementation.
The Inspector-General for Emergency Management
The Inspector-General for Emergency Management (IGEM) provides assurance to the Victorian Government and the community on the state's emergency management arrangements and fosters their continuous improvement.
IGEM reports annually to the minister under section 64(1)(e) of the Emergency Management Act 2013 (the Act) on the implementation of the SAP.
IGEM's SAP progress reports summarise recent implementation activity and assess whether each action is complete, closed (partially implemented or not implemented) or remains in progress.
This report
This is IGEM's seventh SAP progress report. It includes:
IGEM's first assessment of the 36 actions in SAP 2022–25, covering the period July 2022 to June 2023
IGEM's final assessment of nine actions in SAP Update #4, covering the period January 2022 to June 2022.
IGEM bases its assessments on evidence provided by lead departments and agencies, publicly available information, direct observations of emergency management systems and activities, and the updates that lead departments and agencies provide to SCRC.
Section 3 of this report provides more information on IGEM's reporting approach and assessment methodology along with the progress summaries for each action.
IGEM has provided this report to SCRC for noting and to the minister for approval to publish on IGEM's website (igem.vic.gov.au).
2 Background
2.1 The Strategic Action Plan
Section 12 of the Act requires SCRC to develop a rolling three-year Strategic Action Plan.
EMV coordinates the development process on behalf of SCRC, involving a wide range of sector stakeholders in the process. Once approved by the minister, each SAP is published on EMV's website. This section provides more information on the development and approval of each SAP that IGEM has monitored for this report: SAP 2022–25 and SAP Update #4.
In August 2023 SCRC endorsed a new iteration of the SAP – Strategic Action Plan 2023–26 (SAP 2023–26). As of September 2023 this iteration has yet to be approved by the minister or published.
Strategic Action Plan 2022–25
SAP 2022–25 was approved by the minister in consultation with other relevant ministers and published in March 2023.
SAP 2022–25 supports the Strategic Roadmap for Emergency Management in Victoria 2022–28, also published in March 2023.
The Strategic Roadmap sets out the shared vision and priorities that will guide the emergency management sector for the next six years and explains the sector's shared vision for a future with safer and more resilient communities.
The Strategic Roadmap outlines five strategic priorities for the sector:
Priority One – Work with Victorians to understand and reduce the risk of emergencies
Priority Two – Strengthen our use of data, analytics and intelligence to improve decision making
Priority Three – Support communities to be prepared and recover well after emergencies
Priority Four – Build a sustainable emergency management workforce that represents the people it serves
Priority Five – Strengthen governance arrangements to improve accountability, cooperation and participation.
SAP 2022–25 includes 36 actions designed to help the sector deliver on each of these priorities.
The Strategic Roadmap and SAP 2022–25 are accompanied by a Sector Outcomes Framework (March 2023) designed to measure the sector's combined impact, contribution and value.
All three documents are available at emv.vic.gov.au/strategic-priorities.
Victorian Emergency Management Strategic Action Plan Update #4 2019–22
SAP Update #4 was approved by the minister in consultation with other relevant ministers and published in May 2020.
SAP Update #4 outlined four priorities with 11 corresponding actions to help Victoria achieve its emergency management vision of safer and more resilient communities:
Priority One – Drive High Level Reform Toward 2030
Priority Two – Reduce Risk and Build Resilience
Priority Three – Enhance Inclusion and Empower and Build the Capacity of Communities
IGEM's approach to stakeholder engagement for this report – and to implementation monitoring in general – has been guided by the Assurance Framework for Emergency Management2 and its principles of continuous improvement, collaboration and coordination, reducing burden on stakeholders, and adding value to the sector.
IGEM acknowledges the cooperation and assistance from all departments and agencies that lead or colead SAP actions. IGEM thanks them for their engagement across the implementation monitoring process, including for their time meeting with IGEM staff and for the valuable feedback they provided on a consultation draft of this report.
In keeping with the SAP's intent that the sector works as one alongside communities to deliver improvements, IGEM also recognises the contributions made by all organisations and individuals that have supported SAP implementation during 2022 and 2023.
Key stakeholders
Departments and agencies that lead or co-lead SAP actions are:
Country Fire Authority (CFA)
Department of Education (DE)
Department of Energy, Environment and Climate Action (DEECA)
Department of Families, Fairness and Housing (DFFH)
Department of Government Services (DGS)
Department of Health (DH)
Department of Justice and Community Safety (DJCS)
Department of Jobs, Skills, Industry and Regions (DJSIR)
IGEM also consulted with the Fire Services Implementation Monitor (FSIM) when preparing the progress update for SAP 2022–25 Action 5.3 to ensure consistency with its independent monitoring.
2 Available at igem.vic.gov.au/publications/igem-reports/assurance-framework-for-emergency-management.
3 VicPol was originally listed as a co-lead for SAP 2022–25 Action 3.4 however in June 2023 the DJCS Secretary approved EMV as the sole lead agency for this action for clarity of reporting.
3 Progress summaries
3.1 Understanding the progress summaries
The progress summaries in this section provide:
IGEM's first assessment of the 36 actions in SAP 2022–25, covering the period July 2022 to June 2023
IGEM's final assessment of nine actions4 in SAP Update #4, covering the period January 2022 to June 2022.
The table at the start of each progress summary includes:
the action wording and more detailed action description
the lead department or agency responsible for implementing the action
the planned completion date for each action as stated in SAP 2022–25 or SAP Update #4. Any revisions to delivery dates approved by the head of the lead department or agency are also noted.
an implementation status of 'complete', 'in progress', 'yet to commence' or 'closed' (partially implemented or not implemented).
Each progress summary outlines the approach taken by the lead department or agency to implement the action and an overview of the key activity undertaken to implement it. The progress summaries focus on the periods noted above, sometimes with reference to earlier or later developments for context.
Each progress summary ends with a brief evidence-based finding on the progress of each action – for example, whether it is progressing satisfactorily, progressing with implementation challenges, or is in the early stages of development. IGEM takes into consideration factors such as the resources available to lead organisations and competing organisational and sector priorities.
The progress summaries, including the statuses and findings, are based on information and evidence provided to IGEM by lead departments and agencies in July 2023 and endorsed by the department and agency heads. To prepare the progress summaries, IGEM also draws on:
publicly available documents and webpages
the updates that lead departments and agencies provide to SCRC
its direct observations of relevant sector committee meetings and emergency management activities, such as exercises
relevant documents collected through its other assurance activities5
emergency management information systems that it has access to.
4 IGEM reported the two other SAP Update #4 actions as complete in its 2019 SAP progress report. Refer to igem.vic.gov.au/publications/publications/victorian-emergency-management-strategic-action-plan-update-32018-21 for more information.
5 IGEM has leveraged FSIM reporting for SAP 2022–25 Action 5.3 and IGEM's dedicated Triple Zero Reform implementation monitoring for SAP 2022–25 Action 5.2. Refer to each action for details.
The level of assurance that IGEM provides in its progress reports is sometimes limited by the fact that it has been unable to obtain relevant supporting evidence. When a progress summary states that something has been 'advised' by a lead department or agency, this means that IGEM has been unable to obtain evidence that supports the statement. This represents a lower level of assurance.
The progress summaries refer to SAP 2023–26 as required. Many SAP 2022–25 actions continue in SAP 2023–26, some with revised scope, lead agency and/or timeframes.
The progress summary for SAP 2022–25 Action 3.4 includes observations on the Emergency Management Plan Exercising Project. These observations are in line with IGEM's legislated function under section 64(1)(gb) of the Act to monitor, review and assess emergency management planning at a system level.
3.2 Strategic Action Plan 2022–25
Priority One – Work with Victorians to understand and reduce the risk of emergencies
SAP 2022–25 ACTION 1.1 - IMPLEMENT THE AUSTRALIAN FIRE DANGER RATING SYSTEM (AFDRS) IN VICTORIA
This action will implement the AFDRS to provide a more accurate and nationally consistent system for calculating and communicating information about fire danger, in addition to reducing bushfire risk through improved operational decision making and community messaging. Implementation of the AFDRS was a recommendation of the Royal Commission into National Natural Disaster Arrangements.
Planned completion June 2023
Lead agency EMV
Status Complete
On 1 September 2022 the nationally consistent Australian Fire Danger Rating System (AFDRS) was introduced in all states and territories to communicate public information about how dangerous a fire could be if one started, and what actions to take.
For more information on the AFDRS refer to cfa.vic.gov.au/warnings-restrictions/total-fire-bans-firedanger-ratings/about-fire-danger-ratings and to afdrs.com.au.
Australian Fire Danger Rating System (Source: CFA)
EMV is leading the implementation of the AFDRS in Victoria. It has updated the VicEmergency app and website to align with the AFDRS (see emergency.vic.gov.au/prepare/#fire/afdrs). CFA has also released a communications kit to help promote the move to the AFDRS (see cfa.vic.gov.au/warningsrestrictions/total-fire-bans-fire-danger-ratings/australian-fire-danger-rating-system-communicationskit).
In August 2021 SCRC endorsed the governance and stakeholder engagement approach for the AFDRS Implementation Project, and the Project Steering Committee approved the project plan in October 2021. EMV has provided IGEM with a copy of the Victorian Government AFDRS communication plan. The project involved the replacement or retrofitting of existing signs in locations around the state:
357 manual signs were replaced by December 2022, with EMV in the process of replacing or relocating a small number of remaining manual signs before the 2023–24 summer season
70 automatic signs were retrofitted for AFDRS, with work ongoing on the relocation or replacement of a small number of signs.
Information sessions and pre-season briefings were held for emergency management personnel to support the rollout of the AFDRS. Furthermore, the EM Learning platform hosted by EMV provides a range of online learning modules for emergency management personnel on understanding and applying the AFDRS.
A national review of the AFDRS commenced in February 2023 (AFDRS First Season Review) which aimed to learn from the lessons of the 2022–23 summer season and inform approaches and enhancements for the 2023–24 summer season and beyond. The review looked at factors including AFDRS technology, fire science, the AFDRS campaign (public-facing device design and messaging to communities), training, the governance structure and change management arrangements, and the benefits realisation framework.
Victoria participated in this national review via feedback and consultation sessions led by the Australasian Fire and Emergency Services Authorities Council (AFAC) and its appointed consultants.
An EMV-led evaluation of the rollout of the AFDRS was conducted in 2023, including an online survey to gather feedback to assist in preparation for the Victorian 2023–24 summer season. Three face‐to‐face sessions with representatives from DFFH, local government, and VicPol occurred in May and June 2023 as part of the evaluation survey.
To support command and control operational decision-making, the AFDRS Readiness Decision Making Aide Memoire 2022–23 has been developed and takes into consideration the new knowledge the system presents and collective knowledge of fire weather, fire behaviour, and suppression difficulty in Victoria. The aide memoire sets out seven questions to guide readiness decision-making by taking into consideration forest and grassland fire danger ratings and fire danger indices, while concurrently applying and adapting to the AFDRS.
An AFDRS Technical Specialist role has also been created in the State Control Centre (SCC) to provide specialist advice and documentation regarding the interpretation of AFDRS outputs as outlined in the aide memoire. The AFDRS Technical Specialist reports to the Intelligence Officer within the SCC and works closely with Fire Behaviour Analysts to undertake evaluation activities and provide AFDRS-specific advice to decision-makers such as the State Response Controller or State Agency Commanders.
While the AFDRS has now been implemented in Victoria, recent national media coverage has drawn attention to issues with the system generating misleading ratings. This progress report does not assess the operation of the AFDRS, however IGEM notes that these initial issues have the potential to impact public confidence in the new system, and considers further work is required to improve its operation and bring about its anticipated benefits.
Finding
IGEM considers that this action has been implemented.
SAP 2022–25 ACTION 1.2 - IMPLEMENT THE VICTORIAN EMERGENCY RISK ASSESSMENT (VERA) PROJECT
This action will implement the Victorian Emergency Risk Assessment to provide a contemporary and systemic approach to identifying and mitigating emergency risks across Victoria. Under this project, Emergency Management Victoria (EMV) will create a repeatable state risk assessment process informed by partnerships with other states and territories. EMV will also work with CSIRO to include climate modelling in VERA.
Planned completion June 2023 (revised to December 2023 in SAP 2023–26)
Lead agency EMV
Status In progress
EMV is leading the Victorian Emergency Risk Assessment (VERA) Review Project to provide a contemporary and systemic approach to identifying and mitigating emergency risks across Victoria. This will update the current state emergency risk assessment in the Emergency Risks in Victoria report (2020). EMV briefed the Emergency Management Planning Reform Inter-Departmental Committee (IDC)6 on the project on 15 March 2022 and later circulated the project concept brief to State Emergency Management Planning Committee (SEMPC) members.
In 2022 EMV received funding of $180,000 from the Australian Government to support VERA methodology development and implementation. In April 2023 EMV revised the planned completion date for this action from June 2023 to December 2023 due to delays in executing the funding agreement. This action continues in SAP 2023–26 with minor scope changes.
The VERA 2023 Review Project
The VERA 2023 Review Project aims to develop a repeatable emergency risk assessment methodology based on best practice and use this to undertake a state-level emergency risk assessment process for Victoria.
The VERA 2023 Review Project will also address Recommendation 2 from IGEM's Review of 10 years of reform in Victoria’s emergency management sector (10 Year Review) (October 2020) calling for the existing state emergency risk assessment to be updated.
In February 2023 SEMPC endorsed the VERA Project Plan, Stakeholder Engagement Plan, and Working Group Terms of Reference. The Working Group provides subject matter expertise from Victorian Government departments and agencies to support the development of the methodology and scenarios that underpin the emergency risk assessment. The inaugural Working Group meeting was held in May 2023.
In June 2023 risk identification and scenario meetings confirmed 18 emergency risks as in scope for Phase 1 (refer to Table 3).
Table 3: Emergency risks being assessed by the VERA 2023 Review Project
In July 2023 SEMPC endorsed the VERA methodology, which was followed by SCRC endorsement in August 2023.
EMV scheduled workshops in August and September 2023 to assess each in-scope emergency risk. IGEM observed several of these workshops.
An updated Emergency Risks in Victoria report will be submitted to SCRC for endorsement at the November 2023 meeting. The current version was published in July 2020 and is available at emv.vic.gov.au/publications/state-emergency-risk-assessment-reports/emergency-risks-in-victoria-july2020.
Interjurisdictional participation in the VERA Review Project
EMV has established a VERA Review Interjurisdictional Reference Group to ensure continued collaboration with other states and territories to leverage their expertise and ensure the proposed methodology is aligned as best as possible with their requirements. Members will provide lessons learnt, feedback and enhancement opportunities for assessments that can be used for the VERA 2023 Review Project or future iterations of emergency risk assessments across Australia.
EMV advised that planned work with CSIRO to incorporate climate change data into risk assessments has not progressed due to time and capability constraints. However, EMV has included climate data in the data packs for relevant risk assessments.
Assessment of additional emergency risks
EMV advised that assessment of additional risks using the VERA methodology will be considered in future. It also advised that any additional emergency risks would need to meet the specific parameters set out in the VERA methodology to progress to analysis.
The VERA methodology approved by SCRC on 18 August 2023 applies to emergencies that:
are Class 1 or Class 2 emergencies,7
are defined as a major emergency, and
would activate the state emergency management tier.
The methodology explains that state-level emergency risks identified through VERA are those with the largest economic, social, and environmental cost to Victoria, and are not all emergency risks that could occur.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
7 A Class 1 emergency refers to a major fire; or any other major emergency for which FRV, CFA, or VICSES is the control agency under the SEMP. A Class 2 emergency refers to a major emergency which is not: a Class 1 emergency; or a warlike act or act of terrorism, whether directed at Victoria or a part of Victoria or at any other State or Territory of the Commonwealth; or a hi-jack, siege or riot.
SAP 2022–25 ACTION 1.3 - IMPROVE CYBER SUPPORT FOR VICTORIA'S CRITICAL INFRASTRUCTURE AND ESSENTIAL SERVICES
This action will update Victoria’s Cyber Incident Management Plan for public sector critical infrastructure providers. We will deliver programs of work under Victoria’s Cyber Strategy 2021 to support critical infrastructure cyber resilience and update Victoria’s State Emergency Management Plan (SEMP) Cyber Security Sub Plan, including accounting for Commonwealth Security of Critical Infrastructure reforms.
Planned completion October 2023 (completion date currently being revised)
Lead agency DGS (previously DPC)
Status In progress
Victoria’s Cyber Strategy 2021 sets the Victorian Government's cyber agenda and is being implemented via annual mission delivery plans.
The mission delivery plan for 2022–23 includes the initiative: ‘Enhancing Victoria’s preparedness for cyber security emergencies and other state-significant cyber events, to reduce the potential for adverse community impacts and consequences’.
The Cyber Strategy and mission delivery plan are available at vic.gov.au/victorias-cyber-strategy-2021.
The newly established DGS assumed responsibility for this action from the Department of Premier and Cabinet (DPC) following machinery of government changes on 1 January 2023.
DGS is addressing this action through two projects that support achievement of the mission delivery plan initiative:
updating Victoria’s State Emergency Management Plan (SEMP) Cyber Security Sub-Plan
updating Victoria’s Cyber Incident Management Plan for public sector critical infrastructure providers.
The Cyber Security Sub-Plan and the Cyber Incident Management Plan
The SEMP Cyber Security Sub-Plan (November 2020) outlines the arrangements for managing cyber security emergencies in Victoria and provides important information for government, business and the community about cyber security risks and response mechanisms.
SEMP sub-plans are updated every three years to ensure they remain fit-for-purpose. Current sub-plans are available at emv.vic.gov.au/responsibilities/state-emergency-management-plan-sub-plans.
The Victorian Government Cyber Incident Management Plan (2019)8 (CIMP) details the responsibilities of Victorian Government organisations in managing cyber incidents.
Implementation activity and planned change in approach
DGS wrote to agencies advising commencement of the combined SEMP Sub-Plan and CIMP reviews in April 2023 and has provided IGEM with the joint project plan and a summary of early engagement with key stakeholders.
DGS had originally intended for the formal consultation processes for both the SEMP Sub-Plan and CIMP to occur concurrently. However, DGS advised IGEM that it now plans to lead the SEMP Sub-Plan update and the CIMP update through two separate consultation processes, with the SEMP Sub-Plan update process occurring first. This is in response to early stakeholder feedback from public sector critical infrastructure and essential service providers calling for considerably more detail in both documents.
By conducting the SEMP Sub-Plan consultation process first DGS intends to ensure that it is updated before the end of the three-year planning cycle. This will also allow DGS to incorporate feedback received through the SEMP Sub-Plan consultation process into the CIMP, where relevant, before the formal consultation period for the CIMP commences.
8 Available at vic.gov.au/cyber-incident-management-plan.
DGS advised IGEM that it expects the projects that comprise SAP Action 2022–25 Action 1.3 to be completed in early 2024 and is currently seeking approval for the revised approach and corresponding extension to the delivery date. This action continues in SAP 2023–26 and IGEM will provide an update on this in its next progress report.
Finding
IGEM notes the planned change in approach to implementing this action.
SAP 2022–25 ACTION 1.4 - ENHANCE CLIMATE-RELATED HAZARD AND RISK ASSESSMENT CAPABILITIES TO INFORM WATER INFRASTRUCTURE PLANNING, DESIGN AND INVESTMENT DECISIONS
This action will build capability and improve hazard and risk assessment options available for the water sector to better inform water infrastructure planning, design and investment decisions. Under this action the Victorian Government will also improve data accessibility for the water sector.
Planned completion 2026
Lead agency DEECA (previously DELWP)
Status Yet to commence
DEECA advised that this action will commence in 2023–24.
Finding
IGEM notes that this action has yet to commence.
SAP 2022–25 ACTION 1.5 - ENHANCE BUSHFIRE RISK REDUCTION ON PUBLIC AND PRIVATE LAND THROUGH 'SAFER TOGETHER' AND IMPLEMENTING A WHOLE OF SECTOR BUSHFIRE STRATEGY
This action will deliver the ‘Safer Together’ program which will work with high-risk bushfire communities to identify and deliver programs that support community resilience. This action will also deliver a whole of sector Bushfire Strategy to guide land and fire management under a changing climate.
Planned completion June 2023 (revised to March 2024 in SAP 2023–26)
Lead agency DEECA (previously DELWP)
Status In progress
DEECA's activity on SAP 2022–25 Action 1.5 has focused on the delivery of the Safer Together program and Victoria's Bushfire Management Strategy.
Safer Together
Safer Together is the Victorian Government’s multi-agency bushfire risk reduction program. The program involves fire and land agencies working with communities to reduce bushfire risk on both public and private land, and build community and ecosystem resilience.
Safer Together has four priorities: community engagement, fuel management, research modelling and knowledge application, and understanding risk.
The Safer Together program includes various community engagement projects including the following two initiatives:
the Community-based bushfire management (CBBM) program
Strengthening Local Government Partnerships grants.
The CBBM program began as a Safer Together project in 2016. The program is focused on communitycentred bushfire management practice that aims to implement place-based approaches to working with communities, to ensure that local communities are involved in decision-making all year round.
Full-time facilitators in high bushfire risk locations support this process by working with communities to determine what matters to them in the context of where they live. A total of 21 communities are currently participating in the program including networks and working groups set up in Red Hill/Main Ridge and Grantville/The Gurdies in 2022–23.
Other examples of work achieved through CBBM during the 2022–23 reporting period include:
a co-designed evacuation mapping scenario developed with the community and multi-agency stakeholders for Chewton
development of risk assessment and mitigation options through Aireys Inlet Primary School Precinct Bushfire Management Planning for a five-year period, supporting the school and community as well as agency relationships and knowledge sharing
delivery of Get Techy Get Ready sessions in Tolmie and across Mansfield Shire
development of a community-designed and agency co-delivered Township Bushfire Management Plan in Healesville.
Safer Together was the joint winner of the 2022 Resilient Australia National Award for the CBBM program.
In July 2022, the Safer Together program secured $1.82 million to fund Strengthening Local Government Partnerships grants for new and continuing projects that support local councils to develop bushfire risk reduction programs with local communities.
Ten local councils were the recipients of the grants, including Wellington Shire Council and Southern Grampians Shire Council to support their work with high-risk communities on emergency management planning activities, and Mitchell Shire Council to coordinate Emergency Management Working Groups in high-risk communities.
More information on Safer Together is available at safertogether.vic.gov.au.
Victoria's Bushfire Management Strategy
The development of a whole-of-sector bushfire management strategy forms part of the Victorian Government's response to recommendations made in IGEM's Inquiry into the 2019–20 Victorian Fire Season – Phase 1 report (the 2019–20 Victorian Fire Season Phase 1 report) and the Victorian AuditorGeneral’s Office (VAGO) October 2020 report Reducing Bushfire Risks 9
9 Available at igem.vic.gov.au/our-work/evaluation-and-review/fire-season-inquiry/inquiry-reports/inquiry-into-the2019-20 and audit.vic.gov.au/search/reports respectively.
Victoria’s Bushfire Management Strategy (the Strategy) will build on the existing Safer Together policy with a ten-year strategy to reduce bushfire risk. The Strategy will guide bushfire management in the context of Victoria’s changing climate, growing population, and changing demographics. It aims to consider the changing climate in several ways such as integrating research and knowledge on climate change into modelling and planning.
A draft of the Strategy has been developed through a partnership between CFA, DEECA, DGS, DTP, EMV, ERV, FRV, MAV, Parks Victoria, and key interested local councils. The Bushfire Risk Mitigation Committee (BRMC) provides governance and oversight of the Strategy’s development, supported by a joint project team that meets monthly to inform project decisions.
DEECA made the draft Strategy available for public consultation via the Engage Victoria website from 21 July to 20 August 2023. Public consultation was underpinned by a communications and engagement plan to support broad and targeted community and stakeholder engagement including tailored approaches with Traditional Owners.
DEECA has engaged with Traditional Owners since mid-2021 to inform the ‘Aboriginal self-determination in cultural fire and bushfire management’ chapter of the draft Strategy.
Following the incorporation of public feedback and further consultation with sector partners, DEECA plans to have the Strategy finalised by March 2024.
The Strategy will be supported by an implementation plan and a Monitoring Evaluation and Reporting Framework that are currently in development.
This action continues in SAP 2023–26 with:
revised wording ('Delivering Victoria’s Bushfire Management Strategy') and a refined scope focusing on this deliverable
a revised delivery date of March 2024 to support further consultation of Victoria's Bushfire Management Strategy with Traditional Owners and community groups.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 1.6 - SUPPORT INDIVIDUALS, SCHOOLS AND COMMUNITIES WITH THE TOOLS AND INFORMATION THEY NEED TO UNDERSTAND AND TAKE ACTION TO REDUCE RISKS
This action will support education in communities (including schools) by providing the information they need. For example, the development of a targeted program for upper primary students to strengthen the community’s knowledge of and preparedness for bushfires, and seek to expand this to include floods and storms.
Planned completion June 2023 (revised to June 2025 as SAP 2023–26 Action 3.3)
Lead agency DE (previously DET)10/CFA/VICSES (transfers to CFA in SAP 2023–26)
Status In progress
DE and CFA are addressing this action through the development of the Schools in Fire Country program –a new bushfire education program for upper primary school students. This program is part of the multiagency Community First program, which includes CFA, DEECA and local government.
DE advised that VICSES (as the control agency for floods and storms) has not been involved in the implementation of this action, which has focused on the hazard of bushfires.
The Schools in Fire Country program
The Schools in Fire Country program is an evidence-informed bushfire education program delivered through three phases:
Discover – students develop a baseline knowledge of bushfire topics, including fire ecology, cultural burning, bushfire behaviour, and bushfire risk
Investigate – students use their bushfire knowledge to identify a local problem, consult with their school community, and research the problem to find feasible solutions
Take Action – students develop a protype solution, consult with experts, then share what they have developed in a community showcase.
Development of the program
Development of the program commenced in early 2020 between CFA and the multi-agency Safer Together program, Natural Hazards Research Australia (NHRA), and an RMIT University and Central Queensland University research team.
The program is guided by a working group and steering committee comprising representatives from the education and emergency management sectors, along with subject matter experts.
10 The Department of Education and Training (DET) became DE following machinery of government changes on 1 January 2023.
Initial classroom trials
The first classroom trial of program resources and activities was completed at Harkaway Primary School in mid-2022.
CFA and its consultant have prepared a case study of the Harkaway trial to support the program's sustainable implementation.
The Schools in Fire Country program (Source: DE)
A second classroom trial at Chewton Primary School was also completed in early 2023 in conjunction with the local CFA brigade and its CBBM Officer.
Expanding to other schools
DE advised that further classroom trials are scheduled for 2023 and 2024 (including testing of an educational website currently in development).
Funding the ongoing rollout
In June 2023 Victoria was awarded $610,000 for the program from the Australian Government’s Disaster Ready Fund. This is matched by a Victorian Government co-contribution of $675,000.
This provides three years of funding to strengthen relationships across the education, emergency services and research sectors, and identify opportunities to expand, collaborate and learn as the program connects with more schools in bushfire risk areas.
This action transitions to SAP 2023–26 as Action 3.3 with an expanded scope, revised delivery date (June 2025), and revised lead agency (CFA). IGEM will provide an update on SAP 2023–26 Action 3.3 in its next progress report.
Finding
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised.
SAP 2022–25 ACTION 1.7 - REVIEW FUEL MANAGEMENT PERFORMANCE TARGETS THROUGH THE OFFICE OF BUSHFIRE RISK MANAGEMENT (OBRM)
OBRM will lead and coordinate the implementation of evidence-based fuel management policy, practice and assurance and reporting on activities on both public and private land in Victoria. This is the ongoing role of OBRM. This action includes reviewing the existing performance target for fuel management and articulating a pathway to expand fuel management performance targets to all organisations with fuel management responsibilities, in line with the Inspector-General for Emergency Management’s recommendation. This action also includes setting an ecosystem resilience target.
Planned completion June 2023 (revised to August 2024 as SAP 2023–26 Action 1.6)
Lead agency DEECA (previously DELWP)11
Status In progress
In February 2023 DEECA amended the original wording of SAP 2022–25 Action 1.7 – previously 'Coordination of fuel management and development of fuel management performance targets through the Office of Bushfire Risk Management (OBRM)'.
OBRM within DEECA is implementing this action through two concurrent and interrelated projects:
the provision of advice to the Victorian Government on updated fuel management targets
the development of a roadmap to expand bushfire risk management targets to all organisations with legislated fuel management responsibilities.
Both projects form part of the Victorian Government's response to Recommendation 9 from IGEM's 2019–20 Victorian Fire Season Phase 1 report. The projects also address Recommendations 1 and 12 from VAGO's October 2020 Reducing Bushfire Risks report.12
The Victorian Government established OBRM on 1 July 2021 in response to findings and recommendations of IGEM’s Phase 1 report.
Advice to the Victorian Government on updated fuel management targets
The primary purpose of fuel management targets is to drive accountability and responsibility by providing transparent information about how effectively Victoria’s fuel management program13 meets its outcomes.
This project will provide advice to the Victorian Government on:
updated fuel management targets to reduce risk to human life and property and improve ecosystem resilience outcomes
corresponding performance targets on land for which Forest Fire Management Victoria (FFMVic) is responsible for (state forests, national parks, and protected public land).
In November 2022 OBRM completed a cost-benefit analysis to inform the development of updated target options using the Risk 2.014 bushfire risk modelling framework. In December 2022 OBRM commenced costing the options to understand the level of investment required and in January 2023 engaged with FFMVic to test the operational feasibility of options.
In May 2023 OBRM circulated a consultation paper to Victorian Government stakeholders. The paper outlined options for updated fuel management targets for risk reduction to human life and property, and ecosystem resilience, and primarily focused on FFMVic's planned burning activities.
11 DELWP became DEECA following machinery of government changes on 1 January 2023.
12 Available at audit.vic.gov.au/search/reports.
13 For more information see ffm.vic.gov.au/bushfire-fuel-and-risk-management/joint-fuel-management-program.
14 Risk 2.0 is a next-generation, strategic risk modelling project that delivers stronger evidence to support strategic bushfire management decision-making.
On 7 June 2023 OBRM provided an update to BRMC on the feedback received on the consultation paper and how it will be incorporated in the development of the roadmap to expand performance targets for bushfire risk management.
Roadmap to expand bushfire risk management targets
OBRM has commenced the development of a roadmap to guide bushfire risk management for all organisations with fuel management responsibilities across public and private land in Victoria.
In July 2022 OBRM circulated a consultation paper to fuel and land management agencies and sector organisations to inform the development and implementation of the roadmap.
In June 2023 OBRM tested the roadmap principles, outline, and conceptual model with the OBRM Advisory Panel and received feedback.
OBRM established a Cross-Sector Working Group in July 2023 to develop a draft of the roadmap and enable close engagement throughout its development with key departments and agencies.
Next steps
OBRM intends to present the suite of updated fuel management target options to SCRC and Cabinet for endorsement and approval, respectively, to test the options through targeted community and nongovernment stakeholder consultation.
OBRM has commenced development of a communications and engagement plan and communications collateral to support targeted community and non-government stakeholder engagement on target options.
OBRM intends to finalise development of the roadmap with the Cross-Sector Working Group in April 2024 prior to seeking SCRC endorsement in June 2024.
This action continues in SAP 2023–26 as Action 1.6 with a revised delivery date of August 2024 to enable consultation with cross-sector governance committees and align with expected Cabinet approval of the updated fuel management targets and roadmap.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 1.8 - UPDATE PLANNING SCHEMES TO INCLUDE NEW PROVISIONS AIMED AT REDUCING URBAN HEAT EXPOSURE
This action will update planning provisions to respond to climate change based on the most current advice from relevant natural resource and emergency management authorities. This action is part of the Built Environment Climate Change Adaptation Action Plan 2022–26. This action also responds to the Health and Human Services Adaptation Action Plan 2022–26’s key risk of heat health and the impacts of urban heat.
Planned completion June 2023 (revised to June 2024 in SAP 2023–26)
Lead agency DTP (previously DELWP)
Status In progress
DTP assumed responsibility for this action following machinery of government changes on 1 January 2023.
DTP is currently updating sections of the Victorian Planning Provisions (VPP) to help mitigate urban heat impacts and ensure a consistent statewide approach to tree protection and planting in new developments across the built environment. DTP is also developing complementary guidance to help developers, designers, and local councils apply the relevant provisions at the local level.
As part of developing the draft planning provisions and guidance, DTP advised that it has reviewed the latest advice from natural resource and emergency management authorities through consultation on the SEMP Extreme Heat Sub-Plan (2022). The sub-plan includes an outline of proposed planning portfolio responses to reduce urban heat exposure including the use of vegetation cover (greening) and recognises that planning processes have a key role in supporting alignment of cross-agency infrastructure measures that support cooling and greening outcomes for new subdivisions.
DTP undertook consultation on the planning provisions with the Environmentally Sustainable Development (ESD) Roadmap Stakeholder Reference Group15 and Bayside and Monash City councils in April and May 2023.
DTP advised that it provided a detailed presentation on the proposed planning changes and the draft guidelines to DH's Health Infrastructure Division on 1 May 2023.
DTP provided IGEM with a draft of the updated planning provisions reflecting ESD Roadmap Stakeholder Reference Group feedback, its consultation summary report (June 2023), and a draft of the supporting guidance.
Next Steps
DTP advised that it is consulting with DH, EMV and DEECA (Climate Change Division) on the guidelines and intends to brief the Minister for Planning on the planning proposals and guidelines by December 2023.
In February 2023 DTP extended the delivery date for this action to December 2023. The action appears in SAP 2023–26 with a revised delivery date of June 2024.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
This action will support the continuation of Local Public Health Units to expand to deliver regional public health prevention and reduce health risks and prepare for the response to radiation and biological emergencies.
DH is leading this action by expanding the functions of Local Public Health Units (LPHUs).
This action continues in SAP 2023–26 with a revised scope to exclude reference to preparation for the response to radiation and biological emergencies. DH advised that this is because LPHUs are not directly involved in this work. As the control agency for incidents involving biological releases and radioactive materials, DH is currently leading the development of a SEMP Radiation Sub-Plan that it expects to provide to SEMPC for endorsement in late 2023.
15 The ESD reference group includes representatives from Australian Institute of Architects (Victorian Chapter), Council Alliance for a Sustainable Built Environment, Design Matters National, Environment Victoria, Green Building Council of Australia, Housing Industry Association, Municipal Association of Victoria, Master Builders Association of Victoria, Property Council of Australia (Victoria), Planning Institute of Australia (Victoria), Regional Cities Victoria, Rural Councils Victoria and Urban Development Institute of Australia (Victoria).
Local Public Health Units
Victoria's nine LPHUs work with DH to keep local communities healthy, safe, and well. They use local knowledge, community-based relationships, and direct engagement to effectively tailor and deliver public health initiatives and respond to incidents and issues within their region.
LPHUs were established in 2020 during the COVID-19 pandemic to manage local cases and outbreaks of the disease. From July 2022 LPHUs have begun undertaking additional public health responsibilities for various other notifiable conditions.
LPHUs administer programs for disease prevention and population health. This includes responding to COVID-19 and other infectious disease case investigations and outbreaks that may impact their region.
Metropolitan LPHUs
North Eastern Public Health Unit (led by Austin Health)
South East Public Health Unit (led by Monash Health)
Western Public Health Unit (led by Western Health)
Regional LPHUs
Barwon South West (led by Barwon Health)
Gippsland (led by Latrobe Regional Hospital)
Goulburn Valley (led by Goulburn Valley Health)
Grampians (led by Grampians Health)
Loddon Mallee (led by Bendigo Health)
Ovens Murray (led by Albury Wodonga Health)
More information on LPHUs is available at health.vic.gov.au/local-public-health-units.
DH reported to SCRC that a working group has been established with all LPHUs to coordinate public health communications and engagement and ensure targeted and tailored messaging is available for specific communities.
LPHU communications project
In May 2023 DH interviewed LPHUs to understand their communications functions and how to improve working relationships with them in order to co-design campaigns and serve communities better. In June 2023 DH held a workshop to further explore better collaboration and working methods.
DH advised that resulting insights on how to work collaboratively and effectively with LPHUs during emergencies will be implemented as part of the LPHU emergency management model of operations project (see following section).
LPHU emergency management model of operations project
The LPHU emergency management model of operations project is one of five key projects in the Strengthening Regional Emergency Management Capability and Resilience program DH set up following the October 2022 flood event.
DH provided IGEM with a draft report on progress against key deliverables and objectives in the first half of 2023, including defining the roles and responsibilities of LPHUs in supporting DH across emergency preparedness, response, and recovery.
The draft document articulates proposed LPHU emergency management roles and responsibilities for discussion and subsequent endorsement and outlines future considerations for a model of operations.
Work with the Ethnic Communities Council of Victoria on public health messaging
DH works with the Ethnic Communities Council of Victoria (ECCV) to review and adapt public health messaging to ensure public health messaging is culturally appropriate and fit-for-purpose.
For example, in June 2023 DH sought advice from ECCV as part of its development of four seasonal messaging campaigns (for spring 2023 and summer 2023–24) on thunderstorm asthma, extreme heat, mosquito-borne illness, and taking health precautions after a flood or a bushfire.
Public health emergencies communications framework
DH has developed a draft public health emergencies communications framework to enable further partnerships with the community and sector and increase trust and confidence in public health messaging. DH plans to implement the framework from October 2023 following its approval.
Finding
IGEM considers that this action is progressing satisfactorily.
Priority Two – Strengthen our use of data, analytics and intelligence to improve decision making
SAP ACTION 2022–25 ACTION 2.1 - DELIVER ENHANCED INFORMATION AND WARNINGS CAPABILITY TO THE SECTOR AND COMMUNITY TO IMPROVE EMERGENCY PREPAREDNESS, RESPONSE AND RECOVERY
This action will deliver enhancements to the State’s community warning capability through upgrades to the national Emergency Alert telephony platform to reach future 5G customers. It will also deliver upgrades to the VicEmergency App to better service Culturally and Linguistically Diverse (CALD) communities. This action will also see work progress on agreed sector-wide strategic Information Communications Technology (ICT) priorities, including designing the next generation of the Emergency Management Common Operating Picture (EM-COP).
Planned completion June 2023 (revised to August 2025 in SAP 2023–26)
Lead agency EMV
Status
This action has four components:
enhancements to community warning capability through upgrades to the national Emergency Alert to reach 5G customers
upgrades to the VicEmergency app to better service Culturally and Linguistically Diverse (CALD) communities
a community education initiative on the Australian Warning System (AWS)
designing the next generation of the Emergency Management Common Operating Picture (EM-COP).
National Emergency Alert 5G Uplift Project
The national Emergency Alert telephone warning system is used by emergency services to send voice messages to landlines and text messages to mobile phones within a defined area about potential emergencies.
In March 2022 the Australia-New Zealand Emergency Management Committee (ANZEMC) agreed to fund the uplift of the Emergency Alert platform to ensure that members of the community receive locationbased text messages while connected to the 5G network.
The national upgrade was completed in December 2022 to include subscribers of 5G mobile networks. EMV reported the successful completion and closure of the National Emergency Alert 5G Uplift Project to ANZEMC at its May 2023 meeting.
Upgrades to the VicEmergency app
VicEmergency is a centralised website (emergency.vic.gov.au) and app to find emergency information and warnings for Victoria. The website and app have a real-time map display showing incidents across the state. Users can also access preparedness and recovery information related to emergencies.
In July 2021 the EMV program board endorsed a VicEmergency Uplift project concept brief to support CALD communities and improve accessibility. This initiative also supports the delivery of actions in response to IGEM's 2019–20 Victorian Fire Season Phase 1 report.
EMV engaged consultants to develop a proof of concept and design a pilot of the VicEmergency app with accessibility and user interface enhancements. The pilot app received a Better Future Gov Design Award in May 2023.
The pilot app includes the following features:
translations of real-time messages and warnings in Arabic and simplified Chinese, using a combination of artificial intelligence and human translation
the ability to recognise if a screen reader is being used and the option for all information to be presented in list format to support the use of screen readers
a simplified interface to help users quickly and easily find the information they need in emergencies.
EMV advised that the pilot app will be tested by target audiences prior to its release to ensure that it meets their needs.
Australian Warning System community education initiative
The AWS is a new national approach to warnings for bushfire, flood, severe weather, extreme heat, cyclones, and other hazards using a consistent set of icons supported by calls to action.
Australian Warning System levels and calls to action (Source: National Emergency Management Agency)
On behalf of Victoria’s emergency services, EMV has been allocated funding from the Australian Government to lead a tailored AWS community education initiative, to complement the existing national campaign led by AFAC.16
In August 2022 EMV received approval from the DJCS Secretary to engage a consultant to develop and facilitate the community engagement initiative.
The community education initiative is currently in development and EMV advised that it will be rolled out later in 2023. Outputs will include education materials such as storytelling videos, a book (digital and hardcopy), social media assets, and a kit to provide stakeholders with easy access to assets.
More information on the AWS is available at australianwarningsystem.com.au.
Designing the next generation of the Emergency Management Common Operating Picture
EM-COP is an online communication and planning platform hosted by EMV that enables Victorian emergency management personnel to work together, quickly share information, and make strategic decisions. EM-COP supports intelligence gathering and the issuing of public information and warnings during emergencies.
EM-COP has been in operation since 2016. In July 2023 EMV engaged consultants to develop a roadmap for a new platform to replace EM-COP.
Funding of $9.24 million over four years was announced in the 2023–24 State Budget for continuing critical emergency management information services for the community, including the VicEmergency and EM-COP platforms. This funding will allow EM-COP to continue to operate while its replacement is being designed.
Timeframe extensions
In February 2023, EMV extended the delivery date for this action from June 2023 to December 2023 due to staff departures and delays with procurement.
In April 2023, due to the complexity of the work, resource constraints and competing priorities, EMV extended the delivery date for this action again to July 2024.
This action continues in SAP 2023–26 with a revised delivery date of August 2025 and amended scope focused on the maintenance of information and warnings capability of the sector and collaboration with the Australian Government and state and territory governments to determine the future of the national Emergency Alert platform.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
16 For more information see afac.com.au/initiative/afdrs.
SAP 2022–25 ACTION 2.2 - MAKE BETTER USE OF PUBLIC HEALTH DATA TO GENERATE INTELLIGENCE AND AGILE DECISION MAKING AND ENSURE THAT THE INVESTMENT DELIVERS OUTCOMES THAT MATTER TO VICTORIANS
This action will build on the Department of Health’s Syndromic Surveillance program which provides epidemiological community trends, observation data and other Emergency Management related data sources including state-based observation and reporting data, real time hospital admissions and ambulance data.
Planned completion 2025
Lead agency DH
Status In progress
Syndromic surveillance involves rapidly acquiring and evaluating data from hospital emergency departments to provide early warning of possible public health risks. Rapid identification of these possible risks enables public health officials to put measures in place to prevent further illness.
DH has successfully developed and deployed a new syndromic surveillance system called ‘SynSurv’, with modules for a number of public health risks. This includes the SynSurv module on thunderstorm asthma which was able to successfully detect and alert public health officials to a developing thunderstorm asthma event on 8 November 2022.
DH continues to develop further modules and enhance operational systems and procedures (refer to Table 4).
On 20 July 2023 DH demonstrated the functions of the existing SynSurv modules to IGEM and provided an overview of work on the modules in development.
Table 4: List of SynSurv modules developed and deployed and in development
Emergency department stress17
Thunderstorm asthma (used during the thunderstorm asthma season (October to December))
Adverse events following immunisation (used during the rollout of COVID-19 vaccines)
Point-source hazard (water contamination)
Febrile convulsion (vaccine related)
(Japanese and Murray Valley) Encephalitis
Point-source hazard (smoke) (last used in February 2023) Heatwave harms
Broad area hazard (floods) (last used in October 2022)
e-Cigarette harms
Poppy seed tea harms
Snakebite (last used in October 2022)
Ad hoc string searching for exploratory analysis
Finding
Broad area hazard (smoke)
Sick traveller/imported infection
IGEM considers that this action is progressing satisfactorily.
17 This module builds on the existing Real-time Health Emergency Monitoring System which monitors surges in emergency department presentations.
ACTION 2.3 - ENSURE THAT THE DIGITAL SYSTEMS AND TECHNOLOGY ARE SECURE, FIT-FOR-PURPOSE AND ENABLE EFFICIENCY AND EFFECTIVENESS
This action will review best practice Information Technology requirements for the Department of Health to improve the interface with other departmental digital surveillance and reporting systems.
Planned completion June 2023
Lead agency DH Status Closed
This action calls for the review of best practice information technology requirements to improve the interface between DH digital surveillance and reporting systems.
DH advised that a departmental information and communications technology review was commissioned in late 2022 but concluded early with a limited scope due to changing department and government priorities.
Separate to this review, DH provided IGEM with evidence of the assessment of information technology requirements as part of its work to deliver a new emergency management operating model, including the planned upgrade of its emergency management operational response coordination platform.
IGEM notes that this action does not continue in SAP 2023–26.
Platform for emergency management operational response coordination
DH is undertaking work to design a new emergency management operating model, with several areas of focus, including the interoperability of emergency management systems and other systems across the department.
This work includes upgrading its platform for emergency management operational response coordination to address gaps identified in the current system and improve the way DH manages and responds to emergencies. The platform enables DH to meet its statutory obligations to provide a continuous response to emerging threats for departmental clients and services and the wider Victorian community.
DH provided IGEM with descriptions of system limitations and improvement requirements for the operational response coordination platform identified via stakeholder workshops. The workshops also identified interoperability issues with other internal systems.
In August 2023 DH executed a contract variation with its current platform provider to support DH to assess future system requirements and develop a new version of the platform.
DH advised that the upgrade of the emergency management operational response coordination platform will streamline data extraction and interfacing with the DH cloud data environment, and provide the capacity to produce higher quality reporting and analysis products.
Finding
IGEM considers that this action has been partially implemented with plans in place beyond the scope of SAP 2023–26 to deliver further activity.
SAP 2022–25 ACTION 2.4 - UPGRADE VICTRAFFIC TO SUPPORT TRANSPORT USERS AND EMERGENCY RESPONSE UNITS TO MOVE AROUND THE ROAD NETWORK SAFELY AND CONFIDENTLY DURING AN EMERGENCY
This action will upgrade current systems and operational processes under the VicTraffic initiative to provide accurate information during disruptions and state-of-emergency situations and contribute to community resilience. It will address findings from the Inspector-General for Emergency Management’s Inquiry into the 2019-20 Victorian fire season – Phase 1 report, and the recommendations of the Royal Commission into National Natural Disaster Arrangements.
Planned completion April 2024 (revised to June 2024 in SAP 2023–26)
Lead agency DTP (previously DoT)
Status In progress
VicTraffic (traffic.vicroads.vic.gov.au) is the official traffic information platform that lets users view realtime travel times on freeways around Melbourne, see traffic alerts for all of Victoria, and view upcoming roadworks and events likely to impact their travel.
In 2022 the former Department of Transport (DoT) commenced the VicTraffic Project in response to Recommendation 17 from IGEM's 2019–20 Victorian Fire Season Phase 1 report and recommendations 9.2 and 9.3 from the Royal Commission into National Natural Disaster Arrangements Report18 (National Natural Disaster Arrangements report).
On 1 January 2023 DoT became DTP following machinery of government changes.
Delivery of the VicTraffic Project is overseen by the VicTraffic Project Control Board and comprises four streams:
uplift of VicTraffic digital channels
re-platform of the VicTraffic website
re-platform of the SITREP tool used to capture and publish unplanned road disruption events through to the VicTraffic website
implementation of a new digital content management system.
This progress summary provides an overview of implementation activity across the four streams during 2022–23.
VicTraffic uplift
In August 2022 work commenced to uplift the existing VicTraffic digital channels and improve their functionality to support the community.
In March 2023 DTP released an updated version of the VicTraffic website. Key changes include:
upgrades to the application programming interface to improve site responsiveness and user navigation
expanded search capabilities
an increased icon library
location-based personalisation
new filter options enabling users to view the most relevant and up-to-date roadworks.
18 Published October 2020 and available at royalcommission.gov.au/natural-disasters.
The VicTraffic website is also now a progressive web app which means it appears and behaves the same way as a regular app. As a result, DTP decommissioned the VicTraffic app on 29 August 2023.
VicTraffic website (Source: VicRoads)
VicTraffic Strategic Re-platform
DTP has commenced the VicTraffic Strategic Re-platform project to deliver enhanced and robust road closure and disruption information to communities during an emergency event.
DTP has completed the procurement phase and selected a vendor to re-platform the VicTraffic website. Re-platforming involves upgrading the website's technology stack and developing a new presentation layer accessible to users. DTP advised that it commenced this work with the vendor on 1 August 2023.
DTP intends to complete the VicTraffic website re-platform by June 2024.
SITREP re-platform
The SITREP re-platform intends to remove a legacy system risk and uplift operational processes to facilitate the capture of all unplanned road disruptions.
As part of a process that commenced in May 2023, DTP has engaged with SITREP users and local council representatives to identify and refine their requirements for the SITREP re-platform.
DTP has completed an assessment of the technology solution with a preferred platform identified and a vendor appointed.
DTP intends to re-platform the SITREP in two phases with Phase 1 due for completion in March 2024 and Phase 2 due in May 2024.
Digital content management system
In May 2023 DTP commenced work with a supplier to deliver a new digital content management system to integrate richer content authoring and publishing and reduce legacy platform dependencies. The new digital content management system was implemented in June 2023. This action appears in SAP 2023–26 with a revised delivery date of June 2024.
Finding
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised.
SAP 2022–25 ACTION 2.5 - ENHANCE OUR DATA AND ANALYTICS CAPABILITIES TO IMPROVE EMERGENCY MANAGEMENT DECISION MAKING THROUGH THE RELEASE OF AN EMERGENCY MANAGEMENT DATA STRATEGY, IN PARTNERSHIP WITH VCDI
This action will implement a partnership between Emergency Management Victoria and VCDI to improve emergency management sector analytics.
Planned completion June 2023 (revised to 2027 in SAP 2023–26)
Lead agency EMV
Status In progress
IGEM's Review of Victoria’s preparedness for major public health emergencies, including pandemics19 (the Review of Major Public Health Emergencies) and the National Natural Disaster Arrangements report both identified opportunities to improve the emergency management sector's data capabilities.
In January 2021 EMV and the Victorian Centre for Data Insights (VCDI)20 began a two-year partnership with the primary objective of enhancing the emergency management sector's data and analytics capabilities.
Following research and consultation during 2022–23, EMV and VCDI developed a draft Emergency Management Data Strategy which sets out a vision, guiding principles, and priorities to support the enhancement of the sector's data and analytics capabilities and drive data reforms.
In May 2023 EMV received feedback from sector partners on the draft strategy, which informed updates to the document.
At its 21 June 2023 meeting, SCRC endorsed the Emergency Management Data Strategy.
Action 2.5 continues in SAP 2023–26 with a revised delivery date (2027) and scope focused on the implementation of the Emergency Management Data Strategy. The action no longer refers to the VCDI.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
19 Published in September 2022 and available at igem.vic.gov.au/publications/review-of-victorias-preparedness-formajor-public-health-emergencies-including.
20 For information on VCDI see vic.gov.au/victorian-centre-data-insights.
SAP 2022–25 ACTION 2.6 - IMPLEMENT THE SECTOR'S EMERGENCY MANAGEMENT OPERATIONAL COMMUNICATIONS PROGRAM, WITH THE LONGER TERM AIM OF TRANSITIONING COMMUNICATIONS TO A NATIONAL PUBLIC SAFETY MOBILE BROADBAND SERVICE TO IMPROVE EMERGENCY RESPONSE AND SECTOR INTEROPERABILITY
This action will see the continued delivery of the State’s Emergency Management Operational Communications Program which delivers communications (radio, paging, data) upgrades to first responder agencies that are contemporary, resilient, fit-for purpose and affordable.
Planned completion December 2025 (continues as SAP 2023–26 Action 2.3)
Lead agency EMV
Status In progress
The Emergency Management Operational Communications Program (EMOC Program) led by EMV delivers communications upgrades for response agencies that are contemporary, resilient, fit-forpurpose, and affordable.
The EMOC Program involves organisations including Ambulance Victoria (AV), Corrections Victoria, CFA, DEECA, ESTA, FRV, Life Saving Victoria (LSV), VICSES and VicPol.
IGEM has monitored rollout of the EMOC Program since 2016. Previous SAP progress reports available on IGEM's website cover implementation activity to the end of 2021.
This progress summary covers implementation activity for the period January 2022 to June 2023 and key developments since then.
Key EMOC Program components include:
the Victorian Radio Network Service Delivery Model (VRN SDM) Review
stage 2 of the Digital Radio Upgrade Program (DRUP2)
Public Safety Mobile Broadband (PSMB)
replacement digital radios for CFA and Marine Search and Rescue (MSAR)
State Emergency Alerting Service contract extension.
Victorian Radio Network Service Delivery Model Review
The VRN SDM Review aimed to determine the preferred service delivery model for various state operational communications contracts beyond 2025–26.
The review commenced in February 2021, supported by a consultative working group including representatives from AV, CFA, DELWP, DJPR, EMV, ESTA, FRV, LSV, VICSES, and VicPol.21
In March 2022, after identifying and validating requirements with agencies, EMV sought their input on a proposed preferred VRN SDM option. EMV presented preliminary findings and recommendations from the review to the Emergency Services Leadership Group (ESLG) on 16 September 2022.
Following further consultation with working group members, on 29 March 2023 ESLG agreed to a preferred VRN SDM option for implementation.
Digital Radio Upgrade Program Stage 2
DRUP Stage 1 saw VicPol, VICSES, LSV and Corrections Victoria transition radio communications to the state's Regional Mobile Radio (RMR) network and the purchase of new radio terminals.
The 2019–20 and 2021–22 State Budgets provided funding to transition AV and DEECA operations onto the RMR network. The transition of AV and DEECA onto the RMR network is being delivered by EMV under DRUP2.
21 Following machinery of government changes on 1 January 2023, DJPR became DJSIR.
In May 2023 the Minister for Emergency Services approved progressing the delivery of modifications to the RMR network to accommodate the additional radio traffic AV and DEECA will bring, and to ensure end-of-life critical infrastructure can be maintained to comply with required RMR service performance obligations.
Another DRUP2 stream continues to pilot new radio equipment for AV regional deployment.
Public Safety Mobile Broadband
PSMB aims to improve the services delivered by Australia's public safety agencies and enhance operational efficiency and effectiveness by transitioning communications to mobile broadband-based applications and technologies.
Victoria confirmed its commitment to the delivery of the PSMB program in July 2020. The National Emergency Management Agency (NEMA) is responsible for PSMB program delivery.
An independent Australian Government-commissioned PSMB review was published in October 2022. States and territories (including Victoria through EMV) provided feedback to inform the review.
The Australian Government response to the PSMB review supported the establishment of a taskforce to create a national PSMB entity and negotiate an inter-governmental agreement to progress recommendations further. Funding of $10.1 million over two years was provided to establish the taskforce and drive the delivery of a national PSMB capability.
The PSMB Senior Officials Committee meeting of 16 May 2023 allowed jurisdictions to discuss the proposed next steps, including the establishment of the taskforce. EMV represented Victoria on the committee.
Replacement digital radios for CFA and MSAR
CFA completed an equipment pilot across three of its districts in July 2023. EMV has drafted a sourcing plan for CFA review and feedback in preparation for full fleet procurement.
EMV provided IGEM with evidence to demonstrate that pilot testing of new terminals will be conducted for MSAR (part of EMV). EMV advised that pilot testing was expected to commence in July 2023, in preparation for the procurement of terminals.
State Emergency Alerting Service contract extension
The State Emergency Alerting System is a dedicated messaging system which enables emergency services staff and volunteers to be simultaneously alerted to emergency incidents via pager-based text messages.
On 29 June 2023 the Victorian Government and the vendor agreed to an extension of the State Emergency Alerting Service contract for a period of five years from 1 July 2023.
Delayed activity – EMOC Program Benefits Review
EMV advised that a planned benefits review of the EMOC Program was not progressed due to resource constraints and the need to prioritise completion of the VRN SDM Review and continue delivery of DRUP2.
The benefits review was originally scheduled for 2020. IGEM's 2021 SAP progress report encouraged EMV to expedite progression of the review in 2022–23 to help clarify future needs and address any gaps in relation to the EMOC Program. IGEM again stresses the importance of undertaking the review.
This action continues in SAP 2023–26 as Action 2.3.
Finding
IGEM considers that this action is progressing satisfactorily.
Priority Three – Support communities to be prepared and recover well after emergencies
SAP 2022–25 ACTION 3.1A - IMPROVE UNDERSTANDING OF PEOPLE'S BEHAVIOUR IN EMERGENCIES TO PROMOTE BETTER COMMUNITY AND BUSINESS OUTCOMES
This action will develop a framework for understanding community behaviours during emergencies. It will provide increased awareness of behavioural drivers and responses for panic buying during emergencies, and support collaborative efforts to counter misinformation in emergencies, so people can make decisions based on accurate information.
Planned completion
Lead agency
December 2023 (revised to March 2024 as SAP 2023–26 Action 3.1)
DJSIR (previously DJPR)
Status In progress
DJSIR is implementing this action through three activities:
development of a framework for understanding community behaviour in emergencies
development and dissemination of messaging to reduce panic buying
research and development of interventions for misinformation in emergencies.
Community Behaviour Framework
DJSIR is currently developing a Community Behaviour Framework for the emergency management sector to understand food and grocery buying behaviours of Victorians in the context of emergencies.
DJSIR provided IGEM with a framework outline and intends to finalise the Community Behaviour Framework in December 2023.
DJSIR advised that opportunities to share the Community Behaviour Framework will be identified to inform the practices and processes of the emergency management sector.
Messaging
to reduce panic buying
Messaging to reduce panic buying builds on work commenced in 2021 in response to the COVID-19 pandemic.
In 2021 the former DJPR worked with a behavioural insights consultant to develop intervention messages designed to reduce panic buying. DJPR tested the impact of different messages on intentions to panic buy in a national online trial with more than 2000 participants.
DJPR incorporated findings from the online trial into a fact sheet (October 2021) for use by departments and agencies to inform communications related to panic buying.
DJPR shared the findings from the online trial with the State Emergency Management Team and the Emergency Management Joint Public Information Committee. DJSIR later presented the findings at the Emergency Management Conference in July 2022.
This work has been used to inform planning and messaging to manage potential consequences from an emergency animal disease (EAD) outbreak. DJSIR advised that further opportunities to share and use this work will be considered as appropriate.
Interventions for misinformation in emergencies
Research and development of interventions for misinformation in emergencies is supported by funding received through the Risk and Resilience Grants Program22 to deliver the 'Countering misinformation in emergencies for better community and business outcomes' project.
22 For more information see emv.vic.gov.au/how-we-help/grants-and-awards/risk-and-resilience-grants-program.
The project involves building understanding of misinformation in emergencies, identifying possible interventions, and developing a selected intervention for use in future emergencies.
In May 2022 DJPR developed a background issues paper to support its understanding of misinformation in emergencies and identify possible interventions. The background paper identified preventative approaches (interventions) which can be undertaken before an emergency occurs, to reduce the likelihood and impact of misinformation in emergencies.
In January 2023 DJSIR conducted a multi-criteria analysis to compare interventions identified in the background paper and selected a key intervention to develop. In mid-2023 DJSIR consulted with the DGS Business Insights Service and the DPC Behavioural Insights team to support this work by identifying trends and data relating to misinformation in Victorian emergencies.
DJSIR advised that it is in the process of engaging a consultant to progress the development of the selected intervention.
This action appears in SAP 2023–26 as Action 3.1 with a revised delivery date of March 2024 to align with the Risk and Resilience Grants Program funding period. SAP 2022–25 ACTION 3.1B - BUILD CROSS SECTORAL PARTNERSHIPS AND LEVERAGE THE LEARNINGS FROM COVID-19 AND BEHAVIOURAL INSIGHTS TO INFLUENCE SPECIFICALLY IDENTIFIED COMMUNITY SEGMENTS TOWARDS HEALTHIER BEHAVIOURS
Finding
IGEM considers that this action is progressing satisfactorily and notes that the planned completion date has been revised.
This action will develop new public health Engagement and Partnerships that will address health equity by building on the relationships and networks with priority communities and sector partners established throughout the COVID19 response.
DH is implementing this action by strengthening existing relationships with community organisations, government departments, and health services and supporting Local Public Health Units (LPHUs) to engage with community groups using localised prevention and population health approaches.
Supporting LPHUs to engage with community groups
Victoria's nine LPHUs play a critical role in prevention, planning and implementation through local partnerships in their catchments. LPHUs work closely with their local health services, primary and community health services, other Victorian Government agencies, local government, and local communities. Refer to the progress summary for SAP 2022–25 Action 1.9 on page 37 of this report and more information on LPHUs is available at health.vic.gov.au/local-public-health-units.
DH produced a Population Health Catchment Planning Framework (May 2023) to support LPHUs to lead the development of population health catchment plans. The catchment plans are designed to help LPHUs:
implement statewide programs, priorities, and policy at a local level
strengthen local prevention capacity and networks
promote health and wellbeing outcomes that matter to people, communities, and the environment. The LPHU catchment plans will identify opportunities to promote new and strengthen existing public health partnerships. DH advised that the catchment plans have been submitted and are now being implemented with partner stakeholders.
Planned completion June 2023 (revised to June 2024 as SAP 2023–26 Action 3.2)
Lead agency DH Status In progress
Strengthening existing relationships
The Victorian Public Health and Wellbeing Plan 2023–2027 is a key whole-of-Victorian-Government policy framework guiding departments, funded agencies and other partners to implement activity that aims to prevent illness and promote and protect health and wellbeing.
The plan builds on the ten priorities of the previous Victorian Public Health and Wellbeing Plan 2019–2023 with an increased focus on the need to reduce inequalities in community health and wellbeing.
The plan is available at health.vic.gov.au/victorian-public-health-and-wellbeing-plan.
DH advised that a public health and wellbeing outcomes report and a reporting dashboard will be published in 2023–24. DH plans to refresh the current public health and wellbeing outcomes framework in its 2023–27 planning cycle.
In July 2023 DH published the Community Health - Health Promotion Program Guidelines, building on draft guidelines issued in 2021. The health promotion program aligns to the Victorian Public Health and Wellbeing Plan 2019–2023 focus areas, which aim to increase healthy eating and active living, and reduce tobacco and e-cigarette related harm, with an emphasis on more equitable outcomes across the Victorian population. The guidelines are directed at funded agencies that deliver the health promotion program in local communities.
In July 2023 DH also published the Victorian Women’s Health Program Funding and Reporting Guidelines 2023-25 The Victorian Women’s Health Program aims to progress evidence-informed health promotion for women and connects to DH's objective to strengthen public health in Victoria across health protection, disease prevention, and health promotion. The guidelines set out how DH and DFFH work with a variety of women's health funded organisations on common priorities to achieve optimal health and wellbeing for Victorian women and increase gender equality in health and wellbeing.
This action continues in SAP 2023–26 as Action 3.2 with a revised delivery date of June 2024.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 3.2 - IMPROVE THE RESILIENCE OF COMMUNICATIONS NETWORKS AND COMMUNITIES IN BUSHFIRE AND DISASTER-PRONE AREAS
This action will support implementation of NBN satellite facilities to provide resilient public Wi-Fi facilities to regional towns at risk of being isolated from roads and public communications, in addition to resilience improvements to mobile towers including permanent on-site generators, transportable generators, bushfire hardening and battery upgrades. Planned completion
Lead agency DGS (previously DJPR)
Status Complete
The newly established DGS assumed responsibility for this action following machinery of government changes that came into effect on 1 January 2023.
DGS has partnered with the Australian Government to support the Strengthening Telecommunications Against Natural Disasters (STAND) program. The program aims to strengthen telecommunications resilience in socially and geographically isolated communities in bushfire and disaster-prone areas.
Satellite community Wi-Fi facilities
Under the STAND program, the Australian Government allocated $7 million to deliver 2000 STAND National Broadband Network (NBN) satellite community Wi-Fi services nationally, including 344 sites in Victoria. Satellite community Wi-Fi facilities provide communities with an additional layer of redundancy for communications during emergency events when commercial NBN fixed and mobile networks fail.
By August 2022, 343 of the 344 satellite community Wi-Fi facilities had been installed, while one site in Morwell was abandoned.
Mobile Network Hardening Program
In January 2020 the Australian Government announced the $18 million Mobile Network Hardening Program (MNHP) as part of the STAND program. The MNHP aims to increase the resilience of Australia’s mobile telecommunication networks to help prevent, mitigate, and manage outages during bushfires and other natural disasters, through grants to deploy upgrades to mobile telecommunications infrastructure.
Phase 1 of the MNHP provided funding to mobile carriers to improve network resilience by upgrading battery backup power at base stations funded under the Australian Government's Mobile Black Spot Program.23 Phase 1 of the MNHP delivered 94 resilience upgrades across Victoria.
Under Phase 2 of the MNHP, mobile carriers are delivering 132 resilience upgrades with 74 of these upgrades co-funded by the Victorian Government. DJPR engaged with the former Bushfire Recovery Victoria (BRV) and with EMV and the EMC to identify Victorian communities of interest for inclusion in Phase 2.
The Victorian Government completed its contracting requirements for Phase 2 of the MNHP in March 2023, completing its role in supporting the rollout. From this point, contractual arrangements between the Australian Government and the mobile carriers determine implementation, including the site rollout delivery schedule.
The Australian Government advised DGS that it has executed its funding agreements with mobile carriers and that Phase 2 site upgrades are planned for completion by December 2024.
DGS intends to continue to monitor the implementation progress of Phase 2 of the MNHP via quarterly reporting from the Australian Government and mobile carriers.
Finding
IGEM considers that this action has been implemented.
23 Further information on the Mobile Black Spot Program is available at infrastructure.gov.au/mediacommunications-arts/phone/mobile-services-and-coverage/mobile-black-spot-program.
SAP 2022–25 ACTION 3.3 - DEVELOP A SHARED RESPONSIBILITY FRAMEWORK FOR PEOPLE MOST AT RISK IN EMERGENCIES
This action will deliver a contemporary, shared responsibility framework that supports state and local government, peak bodies, non-government agencies and other key emergency management and community stakeholders to prepare the Victorian community to respond to any emergency over the next decade.
Planned completion August 2022 (revised to December 2023 as SAP 2023–26 Action 3.9)
Lead agency DFFH
Status In progress
In April 2021 SCRC endorsed the development of a whole-of-Victorian Government framework to identify shared responsibilities and support emergency management planning for people most at risk in emergencies.
During 2022 DFFH led the Victorian Shared Responsibility for People Most at Risk in Emergencies project (the Shared Responsibility project) in consultation with community organisations, local government, Victorian Government departments and agencies, non-government agencies, and peak bodies.
In August 2022 DFFH presented the two project deliverables to SCRC:
Victorian Shared Responsibility for People Most at Risk in Emergencies: draft foundational document (draft foundational document) – a working document with a ten-year outlook providing contemporary guidance for the emergency services sector on how to implement shared responsibility in practice, including outlining a vision, goals, and success indicators.
Victorian Shared Responsibility Planning Toolkit for People Most at Risk in Emergencies (Planning Toolkit) – a suite of tools and resources to assist emergency management planning for people most at risk before, during, and after an emergency. The Planning Toolkit can be used when developing or testing emergency management plans at any level – at the municipal, regional, or state-level or at the personal, household, and community-level. The Planning Toolkit comprises guiding principles, a planning tool, archetypes and scenarios, journey maps, and case studies.
The draft foundational document and the Planning Toolkit define people most at risk in the following terms:
People most at risk have many dimensions of risk. These dimensions relate to their safety and security, health and wellbeing, knowledge, and connection. People most at risk are not well connected to advice, support, and services.
These people should be prioritised for services and support before, during and after an emergency.
Source: DFFH
SCRC endorsed the Planning Toolkit and noted the draft foundational document at its 11 August 2022 meeting On 6 April 2023 DFFH formally provided the draft foundational document to EMV for the sector’s further consideration.
Phase 2 of the Shared Responsibility project
Phase 2 of the Shared Responsibility project was intended to commence in late 2022 but was delayed due to the October 2022 floods.
Phase 2 aims to:
increase sector awareness of the Planning Toolkit
pilot the Planning Toolkit with a representative group of key stakeholders.
On 4 October 2022 SEMPC endorsed the establishment of a working group to oversee staged implementation of the Planning Toolkit in 2023 and identify opportunities to embed it into Victoria’s emergency management planning processes. Membership consists of representatives from SEMPC
member agencies as well as non-government and social services agencies. The working group held its first meeting on 3 April 2023.
Between April and August 2023 DFFH held a Planning Toolkit pilot with representatives from selected Victorian Government departments and agencies, local government, social services agencies, and nongovernment emergency management experts and academics. Participants were asked to consider the Planning Toolkit's applicability to different cohorts and its relevance as a practical resource to inform and be embedded within emergency management planning practices and documentation.
Consultants engaged by DFFH prepared an independent feedback evaluation report with the pilot outcomes. DFFH presented the outcomes to the working group and to SEMPC in September 2023.
On 5 October 2023 DFFH presented the Phase 2 outcomes and proposed next steps to SCRC. DFFH plans to present a revised version of the planning toolkit to SEMPC in early 2024.
This action continues in SAP 2023–26 as Action 3.9 with a revised delivery date (December 2023) and a revised scope focused on continued development of the Planning Toolkit.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 3.4 - DELIVER THE EMERGENCY MANAGEMENT PLAN EXERCISING PROJECT
This action will deliver the Emergency Management Plan Exercising Project which will implement four communitycentred scenario exercises with emergency management partners to explore catastrophic events, complex responses (such as evacuations) and operations under the shared responsibility model.
Planned completion June 2023 (revised to June 2024 in SAP 2023–26)
Lead agency EMV/Victoria Police/agencies and local government (transfers to EMV in SAP 2023–26)
Status In progress
The completion date for SAP 2022-25 Action 3.4 was originally published in error as June 2023. In April 2023 this was formally corrected to June 2024. In June 2023 the DJCS Secretary approved EMV as the sole lead agency for this action for clarity of reporting.
In early 2022 EMV commenced the Emergency Management Plan Exercising Project (Exercising Project) to deliver four community-centred scenario exercises with sector partners to explore catastrophic events, complex responses (such as evacuations), and operations under the shared responsibility model.
The Exercising Project formed part of the Victorian Government's response to IGEM's 2019–20 Victorian Fire Season Phase 1 report.
Victoria’s shared responsibility approach, as outlined in the State Emergency Management Plan (SEMP),24 recognises that communities:
are best placed to understand and manage their own risks and drive preparedness, response and recovery
should be empowered with the information, capabilities, and opportunities to make decisions and work with agencies for better emergency management outcomes
have networks and relationships that help agencies and communities identify the risks that a community faces, assess the vulnerability of the community to those risks, and identify options to protect the values of most importance to them.
24 The SEMP is available at emv.vic.gov.au/responsibilities/semp.
On 2 February 2022 the Emergency Management Planning Reform IDC25 approved the project plan for the Exercising Project.
At the time of writing this report, two multi-phase exercises have been completed – the Banyule Community Exercise (August–November 2022) and the Murrindindi Community Exercise (March–June 2023). The two remaining exercises are planned for completion by June 2024.
IGEM has a legislated function under section 64(1)(gb) of the Act to monitor, review and assess emergency management planning at a system level. This progress summary includes IGEM's observations on the delivery of the Exercising Project based on its observer role at the Banyule and Murrindindi community exercises.
Banyule Community Exercise
The concept plan for the Banyule Community Exercise was approved by the Emergency Management Planning Reform IDC on 15 March 2022. The exercise focused Banyule seniors as that cohort identified that they often face additional challenges to find, interpret and action public information and warnings.
This exercise was held over four phases with each having a unique focus.
Phases 1 and 2 were held in August 2022 at the SCC and Dandenong Incident Control Centre, respectively, and focused on processes around development and dissemination of state and incident-level public information in a storm event.
Phase 3 was held in September 2022 at Banyule City Council and focused on processes around development and dissemination of municipal-level public information.
Phase 4 was held in November 2022 at the council's Bellfield Community Hub and examined whether seniors could access, understand, and action community information and warnings developed during the first three phases of the exercise.
EMV finalised a sector- and council-facing Banyule Community Exercise Evaluation Report in June 2023. A community-facing summary was noted by SEMPC in September 2023 and provided to exercise partners Banyule City Council and the University of the Third Age (U3A) for use.
On 23 March 2023 EMV presented at the National Crisis Exercise and Lessons Forum on the communityled approach to exercising based on the success of the Banyule Community Exercise.
IGEM observed that community needs were a strong focus throughout the Banyule exercise phases, informing what messages should be developed as well as how and when the messages should be disseminated.
During the exercise, EMV emphasised the importance of working with and listening to communities. Discussions between exercise participants identified barriers to seniors accessing warning information, and participants embraced this as a learning opportunity to identify areas for improvement. The exercise design also enabled senior community members to express their own needs and preferences in relation to emergency messaging and information.
IGEM also observed limited reference to the Banyule Municipal Emergency Management Plan (MEMP) and its Storm and Flood Emergency Sub-Plan during the exercise, with the exception of the vulnerable peoples register (to identify and contact these people) and flood planning documents (to identify floodprone areas). IGEM did not observe discussion of any potential shortcomings of these documents, though notes the intention to review and update the MEMP Communications Sub-Plan as an outcome of the exercise.
IGEM encourages future exercises to better cater for discussion on how municipal-level plans can be improved.
25 The Emergency Management Planning Reform IDC has been superseded by SEMPC.
Murrindindi Community Exercise
The concept plan for the Murrindindi Community Exercise was approved by SEMPC on 4 October 2022. The exercise focused on isolation in an extreme heat scenario given the prominence and likelihood of these emergencies for the community.
The exercise was held over two phases with different areas of focus:
Phase 1 was held in March 2023 at the SCC and focused on assessing agency capabilities in response to an extreme heat event.
Phase 2 was held in June 2023 at the Yea Shire Hall and explored emergency relief centre arrangements within the Murrindindi Shire.26
During Phase 1, IGEM observed discussion between the Murrindindi Municipal Emergency Management Planning Committee (MEMPC) and agencies about the operation of extreme heat sub-plans, the role of the regional tier, and existing initiatives – as well as barriers – to mitigating extreme heat impacts.
IGEM observed that several neighbouring councils were present as observers to the Phase 2 exercise and used the discussion to share knowledge and good practice.
IGEM also observed the commitment by the MEMPC Chair to using the lessons identified through the Murrindindi Community Exercise to inform the review of plans and protocols. IGEM positively notes the intention that learnings from an exercise evaluation report will be incorporated into the next scheduled review of the Murrindindi MEMP.
The Murrindindi Community Exercise focused on isolation only, not evacuation. The concept plan for the exercise noted that VicPol was conducting evacuation exercises across the state in response to Recommendation 11 of IGEM's 2019–20 Victorian Fire Season Phase 1 report. IGEM's Inquiry into the 2019–20 Victorian Fire Season implementation monitoring progress reports27 for 2021 and 2022 provide an overview of this activity.
Exercises three and four
In February 2023 EMV sought expressions of interest for community participation in the third and fourth exercises of the Exercising Project. As of July 2023 EMV has identified two preferred candidates for the remaining exercises.
EMV plans to seek SEMPC approval of the third and fourth exercise concept plans once the engagement process with communities and agencies is established and the developed concept plans have been finalised.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
26 Phase 2 was originally conceived as a field/deployment-style exercise involving Kinglake community members but later modified to a discussion/educational-style exercise involving Murrindindi Shire Council operational staff and community members at Yea, along with department and agency participants.
27 Available at igem.vic.gov.au/our-work/assurance-framework-for-emergency-management/implementationmonitoring.
SAP 2022–25 ACTION 3.5 - PROMOTE IMPROVEMENTS TO THE DISASTER RECOVERY FUNDING ARRANGEMENTS (DRFA)
This action will help make it easier for the sector to access financial assistance after an emergency, by actively contributing to the Commonwealth review of the Disaster Recovery Funding Arrangements (DRFA). This work includes streamlining approval processes under categories C and D of the DRFA and developing off-the-shelf packages to assist with the prompt activation and delivery of assistance measures. EMV will continue to advocate with the Commonwealth for other improvements where appropriate.
This action will see a continuation of activities to improve sector understanding and literacy of DRFA and investment processes such as a new claims management system that will provide step by step claim guidance and funding additional claim assessors that will also guide councils throughout the claims journey.
Planned completion As determined by the Commonwealth Government (confirmed as June 2024 in SAP 2023–26)
Lead agency EMV (transfers to DJCS in SAP 2023–26)
Status In progress
Action 3.5 continues in SAP 2023–26 with a planned completion date of June 2024 and revised scope focused on continued improvements to the Disaster Recovery Funding Arrangements (DRFA) and a new lead agency – DJCS – due to structural changes within EMV and DJCS. Both EMV and DJCS have been involved in implementation of the action to date.
DRFA are cost sharing arrangements between the Australian and state and territory governments. The arrangements enable the provision of financial assistance to support certain relief and recovery measures following an eligible disaster. They do not cover all costs that may be incurred resulting from an eligible disaster.
DRFA measures consist of four categories under which financial assistance is provided to state and local governments, communities, regions, sectors, businesses, not-for-profit organisations, and individuals (refer to Table 5).
Category A Assistance to individuals to alleviate personal hardship or distress arising as a direct result of a disaster.
Category B Assistance to the state, and/or local governments for the restoration of essential public assets and certain counter-disaster operations. Category B assistance also covers assistance to small businesses, primary producers, not-for-profit organisations and needy individuals through concessional loans, subsidies, or grants.
Category C Assistance for severely affected communities, regions or sectors and includes clean-up and recovery grants for small businesses and primary producers and/or the establishment of a Community Recovery Fund. Category C assistance is only made available when the impact of a disaster is severe. It is intended to be in addition to assistance under Categories A and B and is usually considered once the impacts of the disaster on affected communities have been assessed.
Category D Exceptional circumstances assistance beyond Categories A, B and C. Category D assistance is generally considered once the impact of the disaster has been assessed and specific recovery gaps identified.
Category A assistance is provided automatically by the states without requiring approval from the Commonwealth Government.
Category B assistance is provided automatically by the states without requiring approval from the Commonwealth Government.
Category C assistance is requested from the states and requires agreement from the Prime Minister.
Category D assistance is requested by the states and requires agreement from the Prime Minister.
EMV and DJCS have addressed this action through:
improving DRFA support for councils, including a new claims management system (CMS) and increased funding for claims assessors
leading Victorian contributions to two Australian Government initiated reviews: the Disaster Recovery Funding Arrangements Review and the Independent Review of Commonwealth Disaster Funding.
Improved DRFA support for councils
Following the October 2022 floods, EMV created a 'question and answer' webpage28 for the event which captured common questions being asked by councils.
In April and May 2023 DJCS provided presentations to affected councils in relation to the event, providing an overview of the DRFA, key timelines for claims relating to the floods and guidance on the claims process, including how to maximise claim reimbursements. The presentations included insights from one council familiar with the claims process for the benefit of other councils.
In July 2023 EMV introduced a new CMS that provides step-by-step claims guidance to councils, from notification of an event to lodging category A and B claims. The introduction of the system was supported by training, including three council drop-in sessions, provision of user guides, and ‘how to’ videos on system processes.
More information on the new CMS is available at emv.vic.gov.au/how-we-help/disaster-recovery-fundingarrangements-drfa/disaster-recovery-funding-arrangements-drfa-claims/a-new-claims-managementsystem-for-drfa.
DJCS recently funded an increased number of DTP assessors who assess category A and B claims and assist councils throughout the DRFA claims process, including providing training.
Disaster Recovery Funding Arrangements Review
The Australian Government's Disaster Recovery Funding Arrangements Review is addressing recommendations in the National Natural Disaster Arrangements report to ensure the DRFA are fit-forpurpose, appropriately targeted and accessible in the context of more frequent and severe natural disasters.
EMV represents Victoria on a Commonwealth DRFA Stakeholders Group. Victorian participation in the review is facilitated through an Interdepartmental Working Group with representatives from various departments and agencies. As part of the review process, Australian Government discussion papers and positions are taken to the working group for comment.
In September 2022 the National Emergency Management Ministers Meeting endorsed three category C and D packages for Infrastructure Betterment, Recovery Grants for Primary Producers, and Recovery Grants for Small Business and Non‐Profit Organisations. EMV and DJCS have provided feedback that the definition of ‘primary producer’ should be changed to widen the cohort eligible for grant assistance.
EMV and DJCS have coordinated responses to ‘off the shelf’ packages that are currently being developed for tourism and legal assistance services.
EMV and DJCS have provided IGEM with a draft copy of a new streamlined Australian Government DRFA category C and D activation process based on design principles endorsed by all state DRFA Review stakeholders including Victoria.
Independent Review of Commonwealth Disaster Funding
On 1 February 2023 the Australian Government announced an Independent Review of Commonwealth Disaster Funding with a final report scheduled for April 2024. The review will consider how funding arrangements can be optimised to support wellbeing, national productivity, prosperity, and economic security.
28 See emv.vic.gov.au/oct-2022-victorian-flood-event-agrn-1037.
In August 2023 DJCS reported to SCRC on a workshop held in May 2023 with representatives from across Victorian Government departments and noted there will be further opportunity for departments to contribute to the review.
Finding
IGEM considers that this action is progressing satisfactorily.
Priority Four – Build a sustainable emergency management workforce that represents the people it serves
SAP 2022–25
ACTION 4.1 - COMPLETE THE EMERGENCY MANAGEMENT OPERATING MODEL REVIEW
This action will deliver the review of the operating model for emergency management readiness and incident management for Class 1 and 2 emergencies and plan the implementation of a range of proposals that seek to deliver a more secure, reliable, and efficient model for the ‘core’ of the emergency management workforce.
Planned completion June 2023
Lead agency EMV
Status Complete
Action 4.1 was originally worded 'Implement the emergency management operating model review'. In June 2023 the DJCS Secretary approved changes to the action title to better reflect the activity undertaken for the action.
The Victorian Government committed to review Victoria's existing emergency management operating model and identify options for a future operating model as part of its response to IGEM's 10 Year Review.
EMV later reported to SCRC that significant statewide emergencies, including the 2019–20 bushfires and the COVID-19 pandemic, had tested the emergency management workforce and highlighted gaps in workforce capacity, capability and availability. This led to a strong view across the sector that the existing operating model was not set up for a future of longer-running, more frequent, more intense, and multi-hazard emergencies, and that its redesign was required.
The Operating Model Review led by EMV commenced in early 2021. EMV engaged consultants to produce an Emergency Management Operating Model Review Consultation Report (November 2021) and presented stakeholder feedback on its findings and proposals to SCRC on 17 February 2022.
Key activity to deliver the Operating Model Review
EMV delivered a final position paper to SCRC on 4 November 2022 identifying the Operating Model Review proposals to be progressed. SCRC noted the final position paper and endorsed its recommendations. The position paper and associated recommendations were the subject of substantial consultation with SCRC members and the broader emergency management sector.
Following extensive sector work over the first half of 2023, EMV delivered a series of recommendations to SCRC with supporting papers and an implementation plan, which were endorsed by SCRC on 18 August 2023.
Monitoring implementation of the Operating Model Review
SAP 2023–26 includes an action on implementation of the review (Action 4.1). IGEM will provide an update on implementation in its next progress report.
Finding
IGEM considers that this action has been implemented.
SAP 2022–25 ACTION 4.2 - BUILD A SUSTAINABLE, AGILE, AND CAPABLE STATE CONTROL CENTRE (SCC) WORKFORCE
This action will ensure the State Control Centre (SCC) has the capability, capacity and resources to maintain a state of readiness and respond to keep Victorians safe. It includes delivery of a sustainable and dedicated 24/7 workforce that seamlessly integrates with surge workforce partners to deliver the best outcomes and meet the needs of the Victorian community.
Lead agency EMV with departments and agencies (transfers to EMV in SAP 2023–26)
Status In progress
The SCC is Victoria's primary control centre for the management of emergencies. The SCC is the hub of a network of regional control centres and incident control centres across the state. EMV has legislative responsibility for the management of the SCC.
In late 2020 the Victorian Government approved $19.218 million over two years to support a trial of a dedicated workforce to deliver 24/7 SCC functionality. Building on this trial, in May 2022 the government approved ongoing funding for a dedicated SCC workforce to ensure the continued 24/7 functionality of the centre.
In March 2023 the DJCS Secretary approved the ongoing resourcing model for the dedicated SCC workforce. EMV advised that various resourcing issues have contributed to delays with the recruitment of the dedicated workforce. For this reason, in June 2023 the DJCS Secretary approved a six-month extension for the implementation of this action to December 2023.
EMV is currently updating operational doctrine and developing an SCC workforce capability and capacity framework to support the dedicated workforce.
EMV has provided IGEM with a copy of its Capability Uplift and Training Offer (February 2023) listing nationally accredited emergency management courses, industry masterclasses, wellbeing initiatives and conference attendance opportunities designed to help ensure the dedicated workforce has the skills needed to undertake functional duties in the SCC.
Planned completion June 2023 (revised to June 2024 in SAP 2023–26)
The State Control Centre (Source: IGEM)
This action continues in SAP 2023–26 with a revised delivery date (June 2024).
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 4.3 - DEVELOP LEARNING AND DEVELOPMENT OPPORTUNITIES FOCUSING ON INTRODUCTORY AND LEADERSHIP CAPABILITIES THAT MEET THE NEEDS OF THE EM WORKFORCE
This action will implement sector wide reform of emergency and incident management education, learning and development, and an exercising capability uplift. It will include a Learning Reform Action Plan (LRAP) that:
implements a Training and Education Masterplan
reviews Emergency Management Victoria Incident Management Team training and accreditation
provides emergency management training opportunities for council staff
develops role specific training for Municipal Recovery Managers and Municipal Emergency Management Officers.
Planned completion 2027
Lead agency EMV with departments and agencies (transfers to EMV in SAP 2023–26)
Status In progress
EMV is leading this action to implement sector-wide reform of emergency and incident management education, learning and development, and update exercising capability.
This action continues in SAP Update 2023–26 with a revised scope that no longer refers to specific Learning Reform Action Plan (LRAP) deliverables. IGEM notes the LRAP has transitioned to a new Emergency Management Sector Training and Capability Development Model.
The Learning Reform Action Plan
In 2021, as part of the government's response to IGEM's 10 Year Review, consultants engaged by EMV:
reviewed the state’s IMT training and accreditation system and produce a report with findings and recommendations (August 2021)
developed a Training and Development Masterplan that provides a strategic and consistent approach to training and professional development for emergency management personnel (November 2021).
In 2022 EMV consolidated the IMT review and the Training and Development Masterplan into a single document – the LRAP. The Emergency Management Capability and Capacity Steering Committee (EMCCSC) provided oversight of the process.
The LRAP focuses on five key areas:
course development
data sharing
exercise and simulation delivery
leadership, coaching and mentoring development
Victorian Emergency Management Institute enhancements.
The LRAP includes specific content on council statutory emergency management roles.
EMCCSC endorsed the LRAP and its communications and engagement plan in September 2022. This included plans to engage with all 79 Victorian councils to provide the opportunity to contribute to the development and delivery of emergency management learning and ensure that council learning delivery needs are met.
Since then, EMV has coordinated regular updates to EMCCSC on the progress of work completed under the LRAP. The development of the LRAP has identified a need to address the skills and knowledge for broader emergency management and disaster resilience across the preparedness, response, relief, and recovery phases, as well as the ongoing need for IMT training.
Implementation highlights
New learning courses and modules
To address identified knowledge gaps in the emergency management sector:
In February 2023 EMV piloted a coaching course attended by personnel from a range of departments and agencies and received participant feedback on opportunities for improving delivery of the course.
EMV has developed a new relief and recovery eLearn module available to sector personnel via the EM Learning platform.
EMV is currently developing a new eLearn on working with communities in crisis based on traumainformed practice and principles.
In addition, new introductory eLearning courses on Intelligence and Planning have been added to the IMT training catalogue on EM Learning. These courses contain foundational knowledge about Australasian Inter-service Incident Management System (AIIMS) functions and form part of the development pathway towards unit and functional lead training courses.
Disaster Risk Reduction modules
In October 2022 EMV secured grant funding from the Australian Government to develop National Leadership Educational eLearning modules for Disaster Risk Reduction.
The seven modules will be accessible by all organisations and community groups who respond to emergencies across Australia. EMV is progressing review of the modules with completion anticipated in October 2023.
Transition to the Emergency Management Sector Training and Capability Development Model
On 10 May 2023 EMV updated the EMCCSC on the transition of both the LRAP and multi-sector IMT training into a combined activity, the Emergency Management Sector Training and Capability Development Model. EMV reported that nine members of the EMCCSC had committed to fund the establishment of the new model from 1 July 2023. EMV noted that non-funding members would maintain their involvement in the sector training model through the EMCCSC, its Learning and Development Subcommittee, and working groups.
On 20 July 2023 EMCCSC noted EMV's plans to provide members with a Memorandum of Understanding for signing to establish clear funding and accountability arrangements between member organisations.
At this meeting, EMV also provided an Emergency Management Sector Training and Capability Development Schedule to EMCCSC. This calendar of training and education outlines modules on IMT roles, AIIMS and briefing and debriefing training, and professional development for muti-agency sector preparedness activities to be carried out in the second half of 2023.
Finding
IGEM considers that this action is progressing satisfactorily.
SAP 2022–25 ACTION 4.4 - IMPLEMENT THE AVIATION STRATEGIC ACTION PLAN
This action will clarify current emergency management aviation capability, responsibilities and governance arrangements. It will review and ensure a functioning safety management system and fit-for-purpose training and competency management. It will develop an outcomes-based Monitoring, Evaluation and Reporting Framework for aviation, and undertake a Capacity Planning and Strategic Capability Review.
Planned completion June 2024
Lead agency DEECA (previously DELWP)/EMV29
Status In progress
The Victorian Fire, Emergency and Land Management Aviation Strategic Action Plan 2021–2023 (November 2021) was developed by the four agency members of the Executive Aviation Group, in consultation with partners and agencies responsible for fire, emergency and land management in Victoria (refer to Table 6).
Table 6: Executive Aviation Group and Fire and Emergency Management Aviation Group members (Source: DEECA)
EXECUTIVE AVIATION GROUP MEMBERS
29 SCRC reporting between February and June 2023 records DEECA/CFA as lead agencies with coordination support from EMV as required.
The Aviation Strategic Action Plan (the action plan) has 19 actions structured around four strategic priorities to allow successful planning and delivery of aviation services:
Priority One – Working Together
Priority Two – Integrated Capabilities
Priority Three – Investment and Innovation
Priority Four – Measuring Success and Risk.
The Executive Aviation Group members and partner agencies work together cooperatively to implement actions contained within the action plan. DEECA expects the action plan to be implemented by June 2024.
Priority One – Working Together
Priority One focuses on effectively governing, organising, and collaborating across the relevant agencies, the rest of government, other jurisdictions, and the private sector, to undertake work and deliver on the action plan.
Three Priority One actions have been completed:
1.1: Capability Statement
1.2: RACI (responsibility assignment) Matrix
1.5: Accountability Calendar.
Priority One Actions 1.3 (review and resolve funding arrangements), 1.4 (governance review) and 1.6 (code of conduct) are underway and the remaining actions (1.7, 1.8 and 1.9) are scheduled for delivery in 2023–24.
Priority Two – Integrated Capabilities
Priority Two focuses on coordinating people, aircraft, and supporting infrastructure to meet changing needs and readiness for future demand.
Priority Two actions relating to a safety management system review (Action 2.1) and training reform and integration (Actions 2.2 are 2.3) are underway. The safety management system review report is being assessed by an external consultant to provide assurance to the sector of current arrangements.
Priority Three – Investment and Innovation
Priority Three focuses on continuously improving the safety and effectiveness of operations.
Action 3.1 (research and development plan) is underway with Action 3.2 (strategic capability review) scheduled to commence in 2023–24.
Priority Four – Measuring Success and Risk
Priority Four focuses on facilitating evidence-based decision making by the aviation sector and a more informed industry and community.
Two Priority Four actions (Action 4.1: Outcomes-based Monitoring, Evaluation and Reporting Framework and Action 4.2: Body of evidence of aviation effectiveness) are scheduled to commence in 2023–24.
Finding
IGEM considers that this action is progressing satisfactorily.
SAP 2022–25 ACTION 4.5 - DEVELOP AND IMPLEMENT TANGIBLE ACTIVITIES IN CONJUNCTION WITH THE MUNICIPAL ASSOCIATION OF VICTORIA (MAV), COUNCILS AND EMV TO SUPPORT AND BUILD COUNCIL CAPACITY AND CAPABILITY IN EMERGENCY MANAGEMENT
This action will see close collaboration with MAV and councils to develop and deliver tangible actions and guidance to support councils to undertake their emergency management responsibilities. Further work will be undertaken to streamline administrative burdens and scope opportunities to deliver tailored local government training for statutory emergency management roles.
Planned completion June 2024
Lead agency DGS (previously DJPR)/MAV
Status In progress
Following machinery of government changes on 1 January 2023 the newly established DGS assumed responsibility for SAP 2022–25 Action 4.5.
This action builds on the Councils and Emergencies Project completed by DJPR in December 2021 – refer to the progress summary for SAP Update #4 Action 4.2 on page 89 of this report.
This action also relates to Recommendation 3 from IGEM's Inquiry into the 2019–20 Victorian Fire Season – Phase 2 report (the 2019–20 Victorian Fire Season Phase 2 report) 30 This recommendation calls for centralised capability development opportunities to increase local capability and capacity to plan and deliver on their relief and recovery responsibilities.
This progress summary provides an overview of DGS and MAV activity across the following areas:
clarifying council roles and responsibilities
supporting DRFA improvements
training and capability development
delivering preparedness activities.
Clarifying council roles and responsibilities
In early-mid 2023 DGS and MAV reviewed the role of municipal councils within the SEMP’s Roles and Responsibilities section and provided feedback in July 2023 as part of the 2023 SEMP review led by EMV. Outcomes of the SEMP review will be presented to SCRC for endorsement later in 2023.
The DRFA are cost sharing arrangements between Australian and state and territory governments. DJCS administers the DRFA on behalf of the Victorian Government.
In 2022 the former DJPR provided advice to DJCS on updating the Victorian DRFA guidelines for eligible day labour plant and equipment costs under the Victorian DRFA. DJPR supported the inclusion of wholeof-life plant and equipment as eligible costs.
In August 2023 DJCS reported to SCRC that it had incorporated day labour for direct wages and consumables and plant and equipment costs as an eligible expense under the Victorian DRFA guidelines for emergency works and immediate reconstruction works.
During 2022–23 DGS contributed to the DRFA Claims Management System Replacement Project via its membership on the project's user reference group. The user reference group provided advice to the project steering committee on functional requirements and specifications for the new CMS. The new CMS was introduced in July 2023 and provides step-by-step claim guidance to councils.
For more information on improvements to the DRFA and related processes refer to the progress summary for SAP 2022–25 Action 3.5 on page 57 of this report.
30 Published in October 2021 and available at igem.vic.gov.au/fire-season-inquiry/inquiry-reports/inquiry-into-the2019-20-victorian-fire-season-phase-2-report.
Training and capability development
DGS contributes to the development of training to support councils to undertake their legislative emergency management roles through its membership on the EMCCSC Learning and Development Subcommittee. This subcommittee is the governing body for overseeing the training and development required for all capabilities under the Victorian Preparedness Framework31 through a coordinated sectorwide approach.
On 24 May 2023 DGS and MAV participated in Deakin University's client needs analysis session held by EMV. The objective of the session was to make recommendations to EMV for a local government capability development approach which maximises impact and investment return.
On 20 June 2023 MAV hosted the Local Government Fire Management Forum for Municipal Fire Prevention Officers and council officers working in land management and emergency management to hear about current initiatives.
Delivering preparedness activities
In October 2022 MAV, in partnership with DJCS, delivered the 2022–23 Summer Preparedness Briefing for local government emergency management practitioners and communications staff. The session covered the 2022–23 fire season outlook and other preparedness topics including bushfire risk management, water safety, heat, thunderstorm asthma, and community safety initiatives and programs.
Ongoing work under a joint DGS and MAV project plan
DGS provided IGEM with a draft project plan outlining planned work for June 2023 to June 2024 aimed at improving the emergency management capacity and capability of councils.
Finding
IGEM considers that this action is progressing satisfactorily.
SAP 2022–25 ACTION 4.6 - FOSTER A RESILIENT AND FIT-FOR-PURPOSE PUBLIC HEALTH WORKFORCE THAT SUPPORTS SYSTEM RESILIENCE AND SUSTAINABILITY, BUILDING ON LEARNINGS FROM COVID-19
This action will deliver the Department of Health capability, capacity and resources to maintain a state of readiness and respond to all emergencies, particularly Class 2 public health emergencies, and an appropriately trained, diverse and multidisciplinary workforce that meets the needs of the Department of Health’s operational responsibilities.
Planned completion 2025
Lead agency DH
Status In progress
DH is addressing Action 4.6 through:
efforts to increase the size of its emergency management surge workforce
training and capability development initiatives.
31 Available at emv.vic.gov.au/victorian-preparedness-framework.
Emergency management surge workforce
IGEM's Review of Major Public Health Emergencies found that the COVID-19 pandemic demonstrated the need for a sizeable emergency management surge workforce capable of activation in response to rapidly evolving public health emergencies.
DH has developed a communications and engagement plan listing a range of activities to promote recruitment to and retention of its surge workforce. These include the launch of a dedicated emergency management information page on the DH intranet and a dedicated Emergency Management Surge Workforce Hub for prospective and current DH surge staff to access information, registration, and training.
DH is also reviewing its emergency management capability resources and accessibility for existing and new surge staff.
DH advised that its surge workforce increased from 43 members (as of March 2023) to 130 members as of August 2023.
Training and capability development
DH has developed a capability matrix outlining required and desirable emergency management training for operational and surge staff. As of July 2023, the capability matrix was awaiting approval ahead of implementation.
DH has also developed a four-step training pathway to build emergency management capability across the department. DH is operationalising the training pathway through a dedicated emergency management training program launched on its internal learning platform on 20 July 2023 for all staff to access.
DH is developing a Learning and Development Training Dashboard to monitor the development of skills required for staff to perform emergency management roles effectively.
DH has also developed an Emergency Management Capability Monitoring, Evaluation and Reporting (MER) Framework that outlines recommended processes to:
ensure all emergency management-related capability building opportunities offered to departmental staff and its key external stakeholders are appropriate, up to date, achieve value for money and meet departmental needs
monitor progress against building the department’s necessary capacity and capability. The framework is currently awaiting approval and implementation.
Related activity
DH is a funding contributor to the Emergency Management Sector Training and Capability Development Model. The progress summary for SAP 2022–25 Action 4.3 on page 61 of this report provides more information on this cross-sector initiative.
Finding
IGEM considers that this action is progressing satisfactorily.
SAP 2022–25 ACTION 4.7 - STRENGTHEN THE CULTURE AND WELLBEING ACROSS THE WORKFORCE BY IMPROVING DIVERSITY AND TACKLING NEGATIVE BEHAVIOURS, AND INCREASING COLLABORATION BETWEEN AGENCIES
This action will deliver strengthened culture and wellbeing across the emergency management workforce through continued participation in the Diversity and Inclusion Leadership Committee and its associated projects, and the Volunteer Committee, working to strengthen collaboration across our emergency services organisations.
Planned completion 2025
Lead agency EMV with emergency service organisations (transfers to EMV in SAP 2023–26)
Status In progress
The Emergency Management Inclusion and Diversity Leadership Group (Leadership Group) was established in 2016 to:
address barriers to inclusion in the sector workforce
lead and drive change for more diversity in the sector
connect with diverse communities to minimise the impacts and consequences of emergencies.
The Leadership Group comprises representatives from 14 sector organisations – including IGEM – and meets quarterly. Each member organisation appoints an implementation coordinator to progress diversity and inclusion initiatives on behalf of the Leadership Group.
The Leadership Group prepares an annual workplan of projects developed, implemented, and owned by group members, with project updates provided at group meetings. The projects range across three priorities:
Capability uplift to support cultural safety, recruitment, retention, and development of diverse talent.
Workforce and community engagement for greater inclusion and improved emergency and community outcomes.
Sector-wide collaboration and knowledge-sharing to support inclusion and diversity practitioners. Some projects of note during the reporting period are highlighted below:
Sponsorship of Diverse Talent Pilot Program – In 2022–23 EMV and Parks Victoria ran a multi-agency Sponsorship of Diverse Talent Pilot Program. Women participants from across the emergency management sector were matched with a senior leader from another sector organisation to support their growth, development, and progress in the sector and build strategic networks. A second iteration of the program is being planned for late 2023.
Emergency Management Pride Network – The network represents LGBTIQ+ people and allies from the emergency management sector and organises and promotes events to raise awareness and visibility of the LGBTQI+ community across the sector. The workplan notes the network is leading the coordination of activities for the 2023 MidSumma Carnival and Pride March.
Cross-sector inclusion and diversity newsletter – EMV publishes this newsletter to share initiatives and progress in inclusion and diversity across the sector.
Improving the long-term involvement and inclusion of First Nations peoples – Preliminary data collection and analysis has identified several shared priorities across member organisations: improving attraction and retention of Aboriginal and Torres Strait Islander employees; building a culturally safe and inclusive workplace; and enhancing support for existing Aboriginal and Torres Strait Islander employees.
Developing a new inclusion and diversity maturity model to help identify gaps and strengths in diversity and inclusion across member organisations.
Developing the existing EM-Collaboration platform for sector organisations to share resources and seek support in improving inclusion and diversity.
2023 MidSumma Pride March (Source: EMV)
Emergency Management Diversity and Inclusion Framework update
In March 2023 the Leadership Group agreed to EMV developing an updated high-level, principle-based Diversity and Inclusion Framework to replace the cross-sector Diversity and Inclusion Framework published in 2017.
Action 4.7 continues in SAP 2023–26 with minor scope changes.
Related activity – Emergency Responders Health Program
In 2023, to address recommendations from a range of reviews and inquiries,32 EMV commenced an Emergency Responders Health Program focused on the mental health and wellbeing of emergency responders.
Program components for delivery over the next two years are:
an emergency management sector grants program for mental wellbeing initiatives
a support package for the Emergency Services Foundation
an EMV psychosocial and culture fund
a project on mental health data sharing.
Finding
IGEM considers that this action is progressing satisfactorily.
32 These include IGEM's 10 Year Review (October 2020), the National Natural Disaster Arrangements report (October 2020), the Beyond Blue report Answering the Call: The National Mental Health and Wellbeing Study of Police and Emergency Services (2019), and the Victorian Parliament Environment, Natural Resources and Regional Development Committee's Inquiry into the CFA training college at Fiskville final report (2016).
SAP 2022–25 ACTION 4.8 - SUPPORT OUR VOLUNTEERS WITH THE TRAINING AND EQUIPMENT THEY NEED TO KEEP OUR COMMUNITIES SAFE
This action will deliver:
a professional development program to strengthen capability, including training in floods, storms, landslides, incident management and leadership
condition assessments of VICSES facilities and priority maintenance
replacement vehicles including rescue trucks
support for volunteers dealing with complex people and behaviours.
Planned completion June 2024
Lead agency VICSES
Status In progress
VICSES is addressing this action through four streams of work as specified in the action scope. VICSES advised that all streams are tied directly to funding received in the 2022–23 State Budget.
Professional development program to strengthen capability
VICSES has developed 2023–24 training calendars for its volunteers and employees which include training delivery for capabilities such as those related to floods, storms, road rescue, and crew leadership.
In December 2022 VICSES conducted a pilot face-to-face Volunteer Leadership Professional Development Program for 17 volunteers, aligned to the VICSES Leadership Capability Framework. An evaluation of the pilot and options for implementation in 2023–24 was provided to the VICSES Operational Learning and Development Steering Committee in January 2023.
In 2022–23 VICSES completed more than 3000 member skills assessments in relevant capabilities such as Land Based Swift Water Rescue, Storm and Flood Operations and Crew Member Level 1 and Level 2 capabilities. VICSES also ran a masterclass for volunteers with a focus on storm operations.
Condition assessments of VICSES facilities and priority maintenance
The 2022–23 State Budget allocated $1.2 million output funding for condition assessments of all VICSES facilities, to be undertaken by the Community Safety Building Authority. VICSES advised that the tender documentation is currently being prepared and a plan is in development to complete this work in 2023–24.
Replacement vehicles
The 2022–23 State Budget also provided VICSES with funding to replace 21 heavy rescue trucks and seven medium rescue trucks.
VICSES has provided IGEM with related design and procurement documentation. IGEM will provide an update on progress of the truck replacement program in its next progress report.
VICSES is also funded to deliver vehicle replacements (including twin cab utility, four-wheel drive and allterrain vehicles) for its units through the 2022–23 Victorian Government Volunteer Emergency Services Equipment Program.
Support for volunteers dealing with complex people and behaviours
VICSES has advanced the following key initiatives through its ‘Be Heard at VICSES’ program during 2022–23:
The Working Mind First Responders Leadership program is designed to address and promote mental health and reduce the stigma of mental illness in first responder settings. Training was launched in April 2023 with eight sessions completed and 75 staff and volunteer leaders participating.
Face-to-face training for unit leadership was conducted in June 2023 to increase understanding of behaviour expectations and grievance processes, available people management resources, and how to access internal supports.
VICSES is working with the Victorian Equal Opportunity and Human Rights Commission (VEOHRC) to strengthen its prevention of and response to bullying, sexual harassment, discrimination, and victimisation. A VEOHRC Action Plan based on consultation with members and workshops with senior leaders is being finalised for implementation in 2023–24.
Finding
IGEM considers that this action is progressing satisfactorily.
Priority Five – Strengthen governance arrangements to improve accountability, cooperation and participation
SAP 2022–25 ACTION 5.1 - COMPLETE THE EMERGENCY MANAGEMENT GOVERNANCE REVIEW
This action will deliver the Emergency Management Governance Review which aims to ensure the emergency management framework provides clarity and certainty regarding how public sector agencies and departments work together to respond to major emergencies.
SAP 2022–25 Action 5.1 was originally worded 'Implement the emergency management governance review'. In June 2023 the DJCS Secretary approved changes to the action title and description to better reflect the activity undertaken for the action.
The Emergency Management Governance Review (Governance Review) considered the adequacy of Victoria’s current statutory governance arrangements for Class 133 and Class 234 emergencies (the emergency management framework).35 EMV commenced the Governance Review in early 2021 in consultation with emergency management sector departments and agencies.
The Governance Review responds to Recommendations 74 and 77 from the COVID-19 Hotel Quarantine Inquiry Final Report36 and Recommendations 2, 3, and 4 from IGEM's Review of Major Public Health Emergencies.
33 A Class 1 emergency refers to a major fire; or any other major emergency for which FRV, CFA, or VICSES is the control agency under the SEMP.
34 A Class 2 emergency refers to a major emergency which is not: a Class 1 emergency; or a warlike act or act of terrorism, whether directed at Victoria or a part of Victoria or at any other State or Territory of the Commonwealth; or a hi-jack, siege or riot.
35 The emergency management framework provides a statutory basis for an ‘all hazards all agencies’ approach to emergency management and consists of the EM Act 2013, the Emergency Management Act 1986, and the SEMP.
36 Available at quarantineinquiry.vic.gov.au/covid-19-hotel-quarantine-inquiry-final-report-0.
EMV has developed an Emergency Management Governance Review Report in consultation with sector departments and agencies. SCRC endorsed the report at its meeting on 23 February 2023.
Phase 2 of the Governance Review
Recommendation 7 of IGEM's Review of Major Public Health Emergencies called for the abolition of the current classification of emergencies as either Class 1, 2 or 3.37 Phase 2 of the Governance Review intends to progress this recommendation whilst ensuring clarity of accountabilities and robustness of decisionmaking during major emergencies.
IGEM intends to monitor and report on the progress of Phase 2 of the Governance Review as part of its implementation monitoring of recommendations from the Review of Major Public Health Emergencies.
Finding
IGEM considers that this action has been implemented.
SAP 2022–25 ACTION 5.2 - DELIVER REFORMS TO VICTORIA’S EMERGENCY SERVICES TELECOMMUNICATIONS AUTHORITY (ESTA)
This action will deliver the Victorian government’s response to the ESTA Capability and Service Review (the Review), undertaken by Mr Graham Ashton AM APM. This includes delivery of all 20 recommendations made by the Review, which highlight foundational future changes required to reposition ESTA. It recommends fundamental governance reforms, including moving ESTA into DJCS and replacing the current Board and Advisory Committee with a board of advisors. This program of work will also include the development and implementation of strategic roadmaps to support the future delivery of managed services and technology services, and implementation of outcomes based performance standards.
Planned completion December 2023 (revised to June 2025 in SAP 2023–26)
Lead agency DJCS/ESTA (transfers to DJCS in SAP 2023–26)
Status In progress
ESTA provides Victoria’s triple zero call-taking and dispatch services, including emergency ambulance calls. At the peak of the COVID-19 pandemic, ESTA faced challenges in managing record-breaking volumes of emergency calls, particularly for ambulance events.
In 2021 the Victorian Government commissioned the ESTA Capability and Service Review led by former VicPol Chief Commissioner, Mr Graham Ashton AM APM. The review considered all aspects of ESTA’s operating model and assessed its capabilities against the delivery of core services. It made 20 recommendations for improvements across eight themes including governance, call-taking and dispatch and performance standards. In May 2022 the government responded to the review accepting in-principle all 20 recommendations.
In August 2022 IGEM provided the Minister for Emergency Services with its Review of Victoria's emergency ambulance call answer performance: COVID-19 pandemic-related 000 demand surge. IGEM's review assessed both ESTA’s and the broader emergency management sector’s planning and preparedness for a major surge in emergency ambulance calls as experienced during the COVID-19 pandemic. It made eight recommendations for continuous improvement. On 3 September 2022 the Victorian Government responded to the IGEM review accepting the findings and supporting-in-principle the review's recommendations.
37 A Class 3 emergency refers to a warlike act or act of terrorism, where directed at Victoria or at any other state or Territory of the Commonwealth; or a hi-jack, siege or riot.
The government committed to implementing the 28 recommendations from both reviews to reform Victoria’s Triple Zero call-taking and dispatch service.
The series of reforms cover six themes:
governance and organisational change
financial sustainability
operational readiness
technology
call-taking and dispatch capability
workforce support.
Triple Zero Victoria reform progress
The departments and agencies tasked with leading the reforms – DH, DJCS, EMV and ESTA – have undertaken a range of foundational work on reform implementation.
On 30 August 2023 the government introduced the Triple Zero Victoria Bill 2023 to Parliament. The Bill contains provisions for ESTA to become a new statutory body, Triple Zero Victoria, with a Chief Executive Officer and a new board. The Bill contains strengthened governance measures including the establishment of a new Operational Committee – with membership including relevant emergency services organisations, deputy secretaries from DH, DJCS, and DTP, and the EMC.
Among other functions, the Operational Committee will be responsible for:
preparing inter-agency strategic priorities every two years
providing Triple Zero Victoria with advice about any identified risks that may impact the performance of its functions and any improvements to the performance of services it delivers to support emergency services organisations to respond to community needs.
The Governor of Victoria gave Royal Assent to the Bill on 8 November 2023.
Complementing the legislative reform, lead departments and agencies have made progress implementing a range of actions to address themes such as operational readiness, call-taking and dispatch capability, technology, and workforce sustainability. This includes work to develop strategic roadmaps to support the future delivery of managed services and technology services, and progress made towards implementation of outcomes-based performance standards.
IGEM is monitoring the implementation of reform recommendations under a separate assurance process and plans to deliver its first progress report to the minister in December 2023. IGEM will request that the report be made public following consultation with other relevant ministers.
This action appears in SAP 2023–26 with a revised scope and delivery date of June 2025. The scope of the action in SAP 2023–26 focuses on 28 recommendations that will be delivered to embed reforms across call-taking and dispatch, managed services, and technology services supporting statewide triple zero services. DJCS is the lead agency for this action in SAP 2023–26.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 5.3 - CONTINUE TO STRENGTHEN, EMBED AND OPERATIONALISE FIRE SERVICES REFORM
This action will deliver the Minister for Emergency Services’ Year Two to Five Fire Services Reform Implementation Plan.
Planned completion December 2025 (revised to June 2030 in SAP 2023–26)
Lead agency CFA/FRV (transfers to DJCS in SAP 2023–26)
Status In progress
In 2017 the Victorian Government released the Fire Services Statement to set out its vision for the reform of the state’s fire services – a modern, integrated, and sustainable system that keeps Victorians safe.
The reform of Victoria’s fire services is underpinned by legislation38 and supported by a government implementation plan. There have been two iterations of the implementation plan:
The Year One Fire Services Reform Implementation Plan (October 2020) outlined the actions required to embed and operationalise Victoria's new fire services model without interrupting service delivery during the first year.
The Year Two to Five Fire Services Reform Implementation Plan May 2023 update (Year Two to Five Implementation Plan) contains 41 actions across five longer-term reform priorities to guide a 10-year reform program under the Fire Services Statement:
Strengthen CFA as a volunteer firefighter agency
Strengthen FRV as a career firefighting agency Plan and build for the future
Valuing our people
Ensure the future sustainability of the fire services.
CFA and FRV lead most of the actions, with DJCS the lead for a small number of important and foundational actions in the Year Two to Five Implementation Plan.
The implementation plans and more information on the fire services reform are available at vic.gov.au/fire-services-reform.
Fire Services Implementation Monitor
IGEM notes that FSIM provides the Victorian Government and community with independent evidencebased assessment of fire services reform implementation progress.
The Fire Services Implementation Monitor Annual Report 2021-22 (March 2023) found that two actions from the Year Two to Five Implementation Plan were complete as of 30 June 2022 and made four recommendations to strengthen the implementation of Victoria’s Fire Services Reform agenda.
The 2021–22 annual report and more information on FSIM's role is available at vic.gov.au/fire-servicesimplementation-monitor.
Activity reported during 2022–23
IGEM understands that 13 actions were completed during 2022–23 and that FSIM has been provided with acquittal reports for each action. IGEM also notes that FSIM is developing its 2022–23 annual report based on its monitoring and assessment of actions in the Year Two to Five Implementation Plan.
38 Firefighters’ Presumptive Rights Compensation and Fire Services Legislation Amendment (Reform) Act 2019 and Fire Rescue Victoria Act 1958
Changes in SAP 2023–26
This action appears in SAP 2023–26 with a revised action description and delivery date of June 2030 to reflect the full reform project. The description has been expanded to capture the operationalisation and embedding of the Victorian Government's ten-year program of reform across Victoria's fire services, which includes the delivery of the 41 actions outlined in the Year Two to Five Implementation Plan. DJCS is the lead agency for this action in SAP 2023–26.
Finding
IGEM notes progress on this action and that the planned completion date has been revised to reflect the ten-year implementation timeframe of the fire services reform.
SAP 2022–25 ACTION 5.4 - IMPLEMENT EMERGENCY RECOVERY VICTORIA (ERV) AS THE DEDICATED AND PERMANENT ENTITY RESPONSIBLE FOR STATE AND REGIONAL RECOVERY COORDINATION
This action will see Bushfire Recovery Victoria (BRV) expand its responsibilities and transition to ERV, encompassing all emergencies across the state.
ERV will work closely with the recovery sector to help build stronger communities that are better prepared for, and recover faster from, emergencies. ERV will be better integrated with the emergency management sector to ensure a seamless transition from response to recovery. With a regional presence across the state, ERV will work with local government and communities to ensure they lead their own engagement processes, collectively determine their recovery priorities and plan how they will achieve them.
Planned completion June 2023
Lead agency ERV (previously BRV)
Status
Complete
In October 2021 the Victorian Government committed to the design of a dedicated recovery entity with a statewide, all-emergencies focus in response to Recommendation 13 from IGEM's 2019–20 Victorian Fire Season Phase 2 report.
IGEM’s Fire Season Inquiry found that the scale and duration of the 2019–20 bushfires, overlayed with the COVID-19 pandemic, had led to a long period of transition from response to recovery and delayed early recovery planning. These combined factors created a need for a dedicated recovery coordination body beyond what existed prior to the bushfires.
On 17 October 2022 BRV transitioned to ERV, a permanent and dedicated recovery agency focused on building stronger and more resilient individuals, communities, and regions through community recovery. ERV builds on the expertise and experience of BRV, which was established in January 2020 to coordinate recovery from the 2019–20 bushfires.
According to the Emergency Recovery Victoria Recovery Framework (the Recovery Framework) (June 2023), ERV coordinates state and regional recovery efforts and state relief efforts, and works in partnership with all levels of government, businesses, and not-for-profit organisations to ensure recovery enables people, places, and the environment to be stronger and more resilient after emergencies.
ERV has place-based teams across Victoria to work closely with councils and communities to deliver on its responsibilities which include:
operational relief and recovery coordination
leading and coordinating recovery strategy, policy, planning and investment across the emergency management sector
providing assurance that community recovery needs are managed
delivering recovery services as required (including state-coordinated clean-up operations).
The Recovery Framework outlines how ERV and relevant government departments work together across five areas of focus to support disaster recovery (refer to Figure 1). The Recovery Framework and further information on ERV's work is available at vic.gov.au/emergency-recovery-victoria.
2022 VICTORIAN FLOOD RECOVERY
Following the October 2022 floods, ERV led recovery support for affected individuals and communities and coordinated the 2022 Victorian Flood Recovery Clean-Up Program. Clean-up operations included:
a service to help residents register for clean-up services
support for local councils to collect flood debris and waste from kerbsides
structural assessments for residential property and small business.
Information on ongoing recovery support for people and communities affected by the floods is available at vic.gov.au/2022-flood-recovery.
Finding
IGEM considers that this action has been implemented.
Figure 1: Lines of Recovery (ERV Recovery Framework)
Flooding in Maroondah (Source: IGEM)
SAP 2022–25 ACTION 5.5 - DELIVER A LEGISLATIVE REVIEW OF FUEL MANAGEMENT TO SUPPORT MORE EFFECTIVE PLANNING AND INTEROPERABILITY
This action will deliver a review of the legislative framework for fuel management and consider legislative change to:
enable more effective planning and delivery of bushfire management across different land tenures and responsible agencies
support greater interoperability
ensure all firefighters (including volunteers) have sufficient legal protections when carrying out fuel management.
Planned completion July 2023 (revised to December 2024 in SAP 2023–26)
Lead agency DEECA (previously DELWP)/DJCS (transfers to DEECA and EMV in SAP 2023–26)
Status In progress
The legislative framework review was established as part of the Victorian Government’s response to Recommendations 2 and 4 from IGEM's 2019–20 Victorian Fire Season Phase 1 report.
DEECA and DJCS are leading the review, which will identify potential legislative amendments, including alternative options where relevant, to:
enable more effective planning and delivery of bushfire management across different land tenures and responsible agencies
support greater interoperability between responsible agencies
ensure all firefighters (including volunteers) have sufficient legal protections when carrying out fuel management.
A Fuel Management Legislative Review IDC has been established to provide oversight of this work. The IDC comprises executives from DEECA and DJCS and is supported by the Fuel Management Legislative Review Working Group which consists of representatives from departments, fire services agencies, land managers, and MAV. In 2022–23 the IDC held three meetings to discuss key issues and policy options.
Implementation highlights
In July 2022 DELWP developed a discussion paper describing key issues with the current legislative framework, opportunities for improvement, and the key outcomes to be achieved by the review.
Building on the discussion paper, between July and November 2022 the working group held targeted workshops to understand the challenges facing the sector. This engagement explored a range of issues including planning and delivery of bushfire management across different land tenures, interoperability across responder agencies, and legal protections for firefighters when carrying out fuel management.
DEECA and EMV developed an issues paper documenting the results of the engagement which:
describes existing legislation relevant to the themes identified in the July 2022 discussion paper
identifies potential problems or gaps within the existing legislative framework
describes the impact of these problems and gaps on the delivery of fuel management.
The issues paper was endorsed out-of-session by the IDC in February 2023.
In March and April 2023 the working group held workshops to discuss the issues paper with land and fire agencies to consider in greater detail the main legislative barriers and potential policy options.
DEECA and DJCS engaged with local councils via a targeted survey in June 2023 to gain their perspective on how well existing fire prevention and fuel management arrangements work, and to identify focus areas for future reform. Twenty-nine councils provided responses to the survey.
A Local Government Reference Group has also been established to hear directly from local government in their capacity as land managers with fire prevention accountabilities and significant expertise in bushfire risk management. The Local Government Reference Group held its first meeting on 9 August 2023 and is chaired by DEECA, with representatives from 11 councils.
Timeframe extensions
This action appears in SAP 2023–26 with an extended delivery date of December 2024. In June 2022 SCRC approved the extension in-principle due to the complexities of the review, its links to related projects, and to allow in-depth stakeholder engagement. The DEECA Secretary approved the extension in July 2023, also noting the impact of the October 2022 floods on the capacity of community and council stakeholders to contribute to the review.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
SAP 2022–25 ACTION 5.6 - INCREASE VICTORIA’S CAPABILITY AND CAPACITY TO MANAGE LARGE-SCALE, PROLONGED, COMPLEX BIOSECURITY EMERGENCIES IN THE CONTEXT OF INCREASING THREATS FROM EXOTIC PLANT AND ANIMAL DISEASES
This action will strengthen Victoria’s biosecurity system, supporting mitigation of increasing biosecurity risks and supporting growth opportunities for the state. It will include exercises to improve understanding of governance and consequence management for major biosecurity emergencies as well as initiatives to improve surge workforce arrangements.
Planned completion June 2024
Lead agency DEECA (previously DJPR)
Status In progress
Agriculture Victoria (AgVic) within DEECA is implementing this action through the following biosecurity initiatives:
the Emergency Animal Disease39 Preparedness Program (EAD Preparedness Program)
the delivery of plant pest and disease biosecurity preparedness
a gap analysis and roadmap to identify opportunities for preparedness improvement.
Emergency Animal Disease Preparedness Program
In 2022 the risk of an emergency animal disease (EAD) event in Australia reached unprecedented levels due to the detection of Lumpy Skin Disease and foot-and-mouth disease (FMD) in Indonesia, as well as African Swine Fever in Timor-Leste and Papua New Guinea.
In response to this risk, the Victorian Government committed $33 million in 2022–23 to develop a rapid, well-coordinated and appropriately resourced state response to an EAD event.
AgVic is progressing the EAD Preparedness Program in response to the heightened risk of a possible incursion into Australia.
39 An emergency animal disease is a disease that is likely to have significant effects on livestock, potentially resulting in livestock deaths, production loss, and in some cases, impacts on human health.
Governance arrangements
The EAD Preparedness Taskforce was established in the second half of 2022 to bring together departments and agencies to develop an EAD State Response Plan and undertake other activities to rapidly progress disease preparedness.
In November 2022 the Taskforce transitioned to the EAD Preparedness IDC which meets monthly to review risks and progress the state's priorities, including development of a workforce mobility model and consideration of relief and recovery arrangements for an EAD event.
Victorian Government State Emergency Animal Disease Response Plan
In October 2022 AgVic published the Victorian Government State Emergency Animal Disease Response Plan (EAD Response Plan) which outlines the arrangements for the management of a major emergency in Victoria and contains information on mitigation, preparedness, response, and relief activities.
The EAD Response Plan was updated in April 2023 and is available at agriculture.vic.gov.au/biosecurity/protecting-victoria/victorian-government-state-emergency-animaldisease-response-plan.
AgVic has commenced an exercise program to test the EAD Response Plan at state, regional and local levels and to build and maintain multi-agency and industry workforce readiness for a major disease outbreak. In April and May 2023 AgVic held two exercises to test control and coordination arrangements in the EAD Response Plan.
AgVic intends to incorporate findings from completed and upcoming exercises into a revised EAD Response Plan for SCRC endorsement in late 2023.
Victorian Government State Emergency Animal Disease Response Plan (Source: AgVic)
Waste disposal
The Coordinating Ministers Committee endorsed an EAD waste disposal strategy in October 2022. The waste disposal strategy is intended to secure a scalable and effective network of on-farm and off-farm disposal options ready to receive EAD waste within a few days of detecting a major outbreak.
AgVic has commenced a waste disposal work program following endorsement of the waste disposal strategy. AgVic is a member of the Joint Agency Steering Group established to oversee implementation of the waste disposal work program and identify the optimal waste disposal options in readiness for an EAD event. The Joint Agency Steering Group reports to the EAD Preparedness IDC.
Surge Workforce Strategy
The EAD Workforce and Training Interagency Working Group (Working Group) is a sub-group of the EAD Preparedness IDC and is responsible for ensuring that workforce and training arrangements are in place to position Victoria to respond swiftly and comprehensively to an EAD incursion.
In March 2023 the Working Group developed a Surge Workforce Strategy which identifies potential sources of personnel within the Victorian Public Service (VPS) and non-VPS workforces to ensure Victoria maintains capacity to respond to an EAD outbreak and outlines an approach to securing the desired surge workforce.
Exercise MORBUS
On 24 August 2022 SCRC undertook Exercise MORBUS to explore its role in the management of an animal outbreak disease emergency with wide-ranging impacts and against a background of lowered community resilience. IGEM attended as an observer and independent evaluator of the exercise. IGEM’s evaluation report found that the exercise was valuable in the context of the threat FMD poses to Victoria and Australia, and identified opportunities for continuous improvement.
Plant pest and disease preparedness
AgVic advised IGEM that Victoria's plant biosecurity responses are scalable and flexible as the situation evolves, with the complexity of the response determining the resourcing need. AgVic provided IGEM with documentation of a range of measures currently in place to support plant pest and disease preparedness including:
preparedness resources such as a pest ranking matrix, previous plant emergency response evaluations, and guidance on the preparation and maintenance of orders made under the Plant Biosecurity Act 2010
plant pest risk assessments on individual pests or diseases that are of concern
analysis and reporting processes for emergency plant pest detections designed to identify and report critical information and inform assessment of the likelihood of establishment, spread, impact and consequence as well as the means of control or eradication of pests.
In August 2023 AgVic and Plant Health Australia held a joint exercise to enhance AgVic's understanding of plant industries' capacity and capability to support a plant biosecurity response while also evaluating the effectiveness of existing preparedness arrangements.
During 2023‒24 VAGO is conducting an audit of the effectiveness of AgVic’s preparedness, prevention, response, and containment processes in relation to plant pests and diseases. More information on VAGO's audit is available at audit.vic.gov.au/report/protecting-biosecurity-agricultural-plant-species.
Gap analysis and roadmap
In June 2022 AgVic commenced a review of the capability and capacity of its biosecurity preparedness functions to ensure it meets government priorities and legislative requirements.
In September 2022 AgVic completed a stocktake of its current and recent preparedness activities to inform a preparedness gap analysis. AgVic advised that work on the gap analysis remains ongoing.
VICTORIA’S BIOSECURITY STRATEGY
AgVic is developing a new biosecurity strategy for Victoria which aims to turn the vision from Victoria's Biosecurity Statement (2022) into clear goals and priority actions to achieve a stronger and more resilient biosecurity system for the state.
Following a series of consultation sessions with stakeholders from the biosecurity system, AgVic developed Victoria's Biosecurity Strategy Consultation Draft This draft was made available for public consultation via the Engage Victoria online platform between July and August 2023. AgVic received over 100 responses on the consultation draft and intends to finalise the biosecurity strategy in November 2023.
The finalisation of the biosecurity strategy forms part of a four-year program working with government, industry, and the community to strengthen different aspects of the biosecurity system.
Further information on the biosecurity strategy and statement is available at agriculture.vic.gov.au/biosecurity/protecting-victoria/strengthening-victorias-biosecurity-systemprogram.
Finding
IGEM considers that this action is progressing satisfactorily.
SAP 2022–25 ACTION 5.7 - DELIVER A SUSTAINABLE AND RESILIENT HEALTH SYSTEM THAT CAN SCALE QUICKLY AND ACT LOCALLY BY CONNECTING WITH ALL VICTORIAN COMMUNITIES
This action will deliver Health SEMP Sub-Plans that are supported by an emergency management framework that enables rapid scaling and enables the resources of the Victorian Public Service (VPS) to be leveraged when required. This action will also establish a network of Local Public Health Units which allow for more localised engagement and partnership and place-based prevention, regulation and response programs.
Planned completion June 2023 (revised to June 2024 in SAP 2023–26)
Lead agency DH
Status In progress
DH is addressing this action through:
the development of SEMP health sub-plans
activity under its Emergency Management Framework to improve emergency management governance, capability and operations including: establishing a State Health Emergency Management Oversight Group (SHEMOG) developing a strategy to increase its emergency management surge workforce regular involvement in emergency management exercises.
State Emergency Management Plan health sub-plans
As the control agency for health emergencies including human disease (such as pandemics), DH led the development of two SEMP health sub-plans.
The State Emergency Management Plan Health Emergencies Sub-Plan (published in December 2022) supersedes the fourth edition of the State Health Emergency Response Plan (2017) and provides the arrangements and coordination of roles and responsibilities for the management of health emergencies in Victoria.
The State Emergency Management Plan Viral (Respiratory) Pandemic Sub-Plan (published in December 2022) supersedes the Victorian Action Plan for Pandemic Influenza (2015) and outlines the arrangements for managing the consequences of pandemics caused by respiratory viruses in Victoria.
As the control agency for radioactive materials (including leaks and spills), DH is also leading the development of a new SEMP Radiation Sub-Plan.
Emergency Management Framework
In July 2022 the DH Executive Board endorsed a range of recommendations under its Emergency Management Framework to improve emergency management governance, capability, and operations, including recommendations to:
establish an oversight group to provide departmental leadership, direction, and strategic guidance with respect to health emergency management
deliver exercises including inter-agency exercises of emergency plans and report this activity and outcomes to the oversight group
develop a strategy to increase the emergency management surge workforce (for more information on this initiative refer to the progress summary for SAP 2022–25 Action 4.6 on page 66 of this report).
State Health Emergency Management Oversight Group
DH established the SHEMOG in February 2023. Figure 2 shows SHEMOG’s position as one component of DH's health emergency management governance structure.
Figure 2: SHEMOG's position in the health emergency management governance structure
Since its establishment, SHEMOG has created a work plan outlining its oversight role for various projects including development of the SEMP Radiation Sub-Plan, the review of the DH role statement in the SEMP, and the development of an emergency management doctrine framework.
SHEMOG also assumed oversight of DH's health sector critical infrastructure resilience activities including the development and review of key critical infrastructure resilience documents and processes. These include the Health Sector Resilience Plan 2023–24 endorsed by SCRC in August 2023.
Exercising
DH provided IGEM with evidence of various exercises departmental staff attended during 2022–23, including for mass casualty incidents and cross-sector exercises on critical infrastructure resilience.
DH also provided IGEM a calendar of exercises planned for the second half of 2023, covering state and regional emergency teams, surge staff and commander/executive-level exercises.
This action continues in SAP 2023–26 with minor changes in scope and a revised delivery date of June 2024.
Local Public Health Units
DH's establishment of LPHUs in 2020 predates SAP 2022–25. For information on LPHUs and their functions refer to SAP 2022–25 Actions 1.9 and 3.1b of this report on pages 37 and 50 respectively.
Finding
IGEM notes progress on this action and that the planned completion date has been revised.
3.3 Strategic Action Plan Update #4 2019–22
Priority One – Drive High Level Reform Toward 2030
Objective of Priority One:
A vision and plan for the future of emergency management in Victoria, that addresses the challenges and opportunities posed in 2030.
SAP UPDATE #4 2019–22 ACTION 1.1 - LONG TERM WORKFORCE STRATEGY
Develop and implement a long-term workforce strategy that enhances our understanding of evolving workforce challenges and opportunities and assists in the delivery of a diverse, inclusive, competent and sustainable workforce.
Commencement 2015–16 Q2
Planned completion 2020
Lead agency EMV
Status Closed
IGEM understands that no long-term workforce strategy was developed during the reporting period under Action 1.1.
EMV developed a draft workforce strategy for the emergency management surge workforce in early 2022, however EMV advised this work was superseded by SAP 2022–25 Action 4.1.
IGEM notes that three EMV-led SAP 2022–25 actions are related to ensuring a competent and sustainable emergency management workforce for Victoria:
Action 4.1: Complete the Emergency Management Operating Model Review – refer to page 59 of this report
Action 4.2: Build a sustainable, agile, and capable SCC workforce – refer to page 60 of this report
Action 4.3: Develop learning and development opportunities focusing on introductory and leadership capabilities that meet the needs of the EM workforce – refer to page 61 of this report.
Finding
IGEM considers that this action has not been implemented.
Lead reform to Victoria's emergency management planning arrangements by establishing a new integrated, coordinated and comprehensive framework for planning at state, regional and municipal levels.
Commencement 2016–17 Q1
Planned completion 2023
Lead agency EMV
Status Complete
The 2009 Black Saturday bushfires and the 2010–11 and 2012 floods identified a need for strengthened emergency management planning in Victoria. The Victorian Government's Victorian Emergency Management Reform White Paper (December 2012) made the case for new emergency management planning arrangements that formalised the requirement for emergency management planning at the state, regional and municipal levels.
Under Action 1.2, EMV has led the reform of Victoria's emergency management planning arrangements by establishing an integrated, coordinated, and comprehensive framework for planning at the state, regional and municipal levels.
Victoria completed the transition to arrangements under the new framework on 1 December 2020. New state-level arrangements came into effect on 25 September 2019, followed by new regional-level arrangements on 30 September 2020, and new municipal-level arrangements on 1 December 2020. These arrangements are set out in the Emergency Management Act 2013.
Previous IGEM progress reports detail EMV's development of the amending legislation that introduced the new arrangements and its support for the creation of new and updated emergency management plans at each level.
The first Victorian State Emergency Management Plan (SEMP) was published in September 2020, followed by eight Regional Emergency Management Plans in November that year.
The SEMP was reviewed in 2021 and a revised version published in October that year. It is undergoing a second comprehensive review in 2023. The SEMP is complemented by hazard-specific sub-plans that are also subject to regular review. These plans are available at emv.vic.gov.au/responsibilities/emergencymanagement-planning.
During the reporting period:
In June 2022 a permanent State Emergency Management Planning Committee (SEMPC) chaired by the EMC was established to oversee state-level emergency management planning. SEMPC replaces the previous Emergency Management Planning IDC.
Updated Flood and Storm SEMP sub-plans were published in February 2022. The Energy sub-plan was published in March 2022.40
Since then, updated Extreme Heat, Earthquake, Health Emergencies and Viral (Respiratory) Pandemic SEMP sub-plans have also been published. An updated Energy sub-plan was published in June 2023.
As existing Municipal Emergency Management Plans (MEMPs) fall due for review they are updated for consistency with the new arrangements. IGEM assesses this action as complete noting that at the time of writing some MEMPs have yet to be updated and that this is scheduled to occur by the end of 2023.
EMV continues to support the emergency management arrangements, including maintaining an online emergency management planning resource library that includes plan templates and guidelines for plan development (emv.vic.gov.au/em-planning-resource-library).
40 This sub-plan replaced and superseded the State Emergency Response Plan Sub-Plan Electricity and Gas and the State Emergency Response Plan Sub-Plan Liquid Fuels.
EMV continues to lead the Emergency Management Plan Exercising Project 2022–2024 to test and exercise emergency management plans with selected Victorian communities – refer to SAP 2022–25 Action 3.4 on page 54 of this report.
Results of the Victorian Emergency Risk Assessment Review Project led by EMV are also a key input to emergency management planning processes – refer to SAP 2022–25 Action 1.2 on page 27 of this report.
IGEM has also completed an emergency management planning arrangements assurance project that identifies examples of good practice in existing plans and opportunities for improvement. As part of an extensive consultation process, IGEM has shared the learnings from this project with planning committees at state, regional and municipal levels.
Finding
IGEM considers that this action has been implemented.
SEMP Energy Sub-Plan (Source: DEECA)
Priority Two – Reduce Risk and Build Resilience
Objective of Priority Two:
Increased capacity and capability of local communities to identify, mitigate and reduce risk and to be ready to prepare for, respond to, and recover from an emergency.
SAP UPDATE #4 2019–22 ACTION 2.1 - IMPACT
ASSESSMENT MODEL
Implement a comprehensive impact assessment model across all hazards and all phases of emergency management that includes processes to collect, analyse, and communicate impact information that strengthens understanding of community diversity and values. The system will inform decision making, planning processes and activities by communities and the sector, providing opportunities for tailored support and engagement based on community need.
Planned completion 2020 (revised to June 2022)
Lead agency EMV
Status Complete
Impact assessment quantifies the effects of emergencies on communities and the natural and built environments through the collection and analysis of impact-related data.
Victoria's impact assessment model aims to provide timely, accurate, and comprehensive information to departments, agencies, and councils to inform decision-making and the planning of relief and recovery programs.
Key activity to implement this action includes the release of new impact assessment guidelines and upgrades to the EM-Impact system.
Impact assessment guidelines
In August 2022 the EMC released impact assessment guidelines for the planning and conduct of impact assessment following emergency events. The guidelines supersede interim guidelines issued for the 2021–22 summer season and previous guidelines issued in 2015.
An impact assessment guidelines desktop exercise was held in May 2022. The exercise utilised a storm scenario and walkthrough of the processes involved for impact assessment data flow and sharing.
Operational, departmental, and local government personnel provided feedback on a draft version of the guidelines.
Feedback on data sharing and privacy received from the Office of the Victorian Information Commissioner has also been incorporated into the guidelines.
EM-Impact system upgrade
Initial impact assessment41 information is gathered and shared via the EM-Collaboration platform. The EM-Impact system acts as a centralised repository of information providing the capability and tools to gather and share secondary impact assessment42 information from multiple government departments, agencies and municipal councils.
In 2021 EMV identified updates required to the EM-Impact system data portal and visualisation tools used for data entry, collation, and analysis. In 2022 the external vendor completed significant system development, with EM-Impact dashboards updated with enhanced functionality and a range of system issues resolved.
41 Secondary impact assessment is more detailed than initial impact assessment and supports understanding the type and level of assistance needed by affected communities.
42 Initial impact assessment typically begins in the first 24 to 48 hours of an emergency event and is focused on the collation of immediate impact data.
The impact assessment guidelines, data portal and tools are available to emergency management personnel via the sector's shared EM-COP platform.
In March 2022 EMV extended the completion date from December 2021 to June 2022 due to resourcing constraints caused by recent storm events and delays securing a vendor. The project team subsequently moved to ongoing activities to support the functioning of the impact assessment model.
Finding
IGEM considers that this action has been implemented.
Priority Three – Enhance Inclusion and Empower and Build the Capacity of Communities
Objective of Priority Three:
Increased capacity and capability of volunteers to engage with, and support, emergency management response in Victoria, before, during and after an emergency event.
ACTION 3.1 - VOLUNTEERISM AND COMMUNITY LEADERSHIP
Explore and develop approaches that allow different types of leaders to emerge from the evolving landscape of volunteerism.
Commencement 202043
Planned completion 2020
Lead agency EMV
Status Closed
EMV made little progress towards confirming an approach to Action 3.1 during the reporting period and since the action's commencement in 2020.
However, IGEM positively notes that the Emergency Management Operating Model Review Implementation Plan endorsed by SCRC in August 2023 includes a project to enhance emergency management volunteering. IGEM encourages the consideration of volunteer leadership development as part of this work.
The Ensuring a Strong Volunteer Workforce Statement of Intent (February 2023)44 signed by the EMC and the Chief Executive Officers of CFA, LSV, and VICSES recognises the importance of access to training and development opportunities for volunteers.
Finding
IGEM considers that this action has not been implemented.
43 SAP Update #4 records that Action 3.1 commenced in 2020. The action was created through the merging of two existing SAP Update #3 actions: Action A1+A3, which commenced in 2017–18 Q3, and Action D3, which commenced in 2018–19 Q3.
44 Available at emv.vic.gov.au/news/supporting-our-emergency-services-volunteers.
Priority Four – Foster Strategic Capability
Objective of Priority Four:
A sophisticated and innovative workforce that embraces a positive culture and promotes respect, leadership, cooperation, innovation and diversity.
SAP UPDATE #4 2019–22 ACTION 4.2 - LOCAL GOVERNMENT CAPABILITY AND CAPACITY ACTION PLAN
Drawing from the above45, develop action plans to address capability and capacity gaps.
Commencement January 2021
Planned completion December 2021
Lead agency LGV (DJPR)46
Status Complete
Local Government Victoria (LGV) has addressed this action through the third and final phase of the Councils and Emergencies Project.
Phases One and Two of the project clarified the emergency management responsibilities and activities of local government and assessed the emergency management capability and capacity of councils. IGEM reported the related SAP action (SAP Update #4 2019–22 Action 4.1) as complete in its 2019 SAP progress report.
Phase Three is now also complete.
Phase Three involved engagement with councils and other emergency management sector organisations to identify potential actions to address the local government capability and capacity gaps identified in Phase Two.
The Councils & Emergencies Phase Three Regional Consultation Report (June 2021) outlines the capability and capacity issues councils face in carrying out their emergency management responsibilities in the areas of people, resources, governance, systems and processes (refer to Table 7) and identifies potential actions to address the issues.
45 Refers to drawing from SAP Update #4 2019–22 Action 4.1: Clarify and confirm the emergency management roles of local government and assess councils’ capability and capacity to meet their emergency obligations.
46 LGV was part of the former Department of Jobs, Precincts and Regions prior to its transfer to the new Department of Government Services on 1 January 2023.
Lack of experienced emergency management planning staff
Further staff supports and recognition within emergency management
Challenges with balancing emergency management responsibilities with BAU roles
Loss of organisational knowledge and impacts to capability due to high staff turnover
Boosting capacity from external sources
Outdated relief and recovery centres
Lack of transport resources
Inconsistent funding arrangements
Insufficient funding arrangements
Lack of clear direction and complex reporting requirements given by State
Relationship with agencies and the broader emergency management sector
Emergency management budget allocation within councils
Emergency management profile within councils
Lack of standardised training for emergency management
Emergency management training is not available or accessible
Difficulty navigating existing platforms and applications
Lack of standardised IT platforms
Unstandardised and inconsistent processes
Criticality of resource sharing
Challenges with maintaining community engagement in emergency management
Lack of consistent IT hardware guidelines
On 18 November 2021 EMCCSC noted the consultation report and endorsed the completion of the Councils and Emergencies Project.
On 2 December 2021 SCRC noted the consultation report and the completion of the project. Councils and Emergencies Project reports are available at localgovernment.vic.gov.au/resilience-andemergency-management/emergency-management.
The findings of the Councils and Emergencies Project have informed the ongoing work by DGS and MAV to implement SAP 2022–25 Action 4.5 – refer to the progress summary on page 65 of this report.
Finding
IGEM considers that this action has been implemented.
SAP UPDATE #4 2019–22 ACTION 4.3 – WORKFORCE DIVERSITY AND INCLUSION
Develop a comprehensive shared vision and articulation of the case for change on gender representation, diversity and inclusion in Fire and Emergency; and to conduct an analysis of gender representation, diversity and inclusion in communications across the sector.
Commencement July 2019
Planned completion 2019
Lead agency EMV
Status Complete
The case for change on gender representation, diversity and inclusion
IGEM reported this part of SAP Update #4 2019–22 Action 4.3 as complete in its 2020 SAP progress report.
IGEM noted EMV’s contribution to the report Gender Balance in Fire and Emergency – Going Beyond ‘it’s the right thing to do’ – The Case for Change (November 2020). The report presents a shared vision for gender balance, diversity and inclusion in fire and emergency services in Australia and New Zealand.
AFAC and the Champions of Change Fire and Emergency Group produce annual reports on actions to advance more women into leadership and build more respectful and inclusive working environments. More information is available at championsofchangecoalition.org/groups/champions-of-change-fireand-emergency.
Analysis of gender representation, diversity and inclusion in communications
IGEM’s 2021 SAP progress report noted that EMV had provided IGEM with data on gender representation, diversity and inclusion in images distributed via EMV communications platforms during 2019–20 and 2020–21.
Since then, analysis, findings and improvement opportunities have been identified and captured in a report, which EMV has provided to IGEM. EMV advised that the report is currently being reviewed prior to its finalisation.
IGEM notes that this part of Action 4.3 focused on EMV communications platforms (VicEmergency Facebook and Twitter, EMV LinkedIn, the EMC's Twitter, EMV News Twitter and the EMV News website). Opportunities may exist to build on this work and examine gender representation, diversity and inclusion in communications distributed by other sector organisations.
Related activity
The progress summary for SAP 2022–25 Action 4.7 on page 68 of this report provides an overview of work led by EMV and emergency services organisations to improve diversity and strengthen culture and wellbeing across the emergency management workforce.
Finding
IGEM considers that this action has been implemented.
SAP UPDATE #4 2019–22 ACTION 4.4 - CAPABILITY MODEL
Progress to an all-emergencies capability model that captures and baselines the state’s current capability and capacity and identifies gaps and opportunities to leverage capability across government, agencies, business, and community.
Commencement 2015–16 Q1
Planned completion 2021
Lead agency EMV
Status Complete
The Emergency Management Capability and Capacity Project led by EMV uses the Victorian Preparedness Framework (VPF) to provide a baseline view of capability across the emergency management sector.
The VPF (2022 Update) describes the 21 core capabilities and associated critical tasks needed to manage emergencies in Victoria. These core capabilities and critical tasks set the foundation for how the state prepares for, responds to, and recovers from emergencies.
The VPF is available at emv.vic.gov.au/victorian-preparedness-framework.
The VPF includes a process to estimate capability for each of the 21 core capabilities and then compare the estimated capability against predetermined targets. The process then considers where additional capability and capacity might be found to address any gaps – for example, through state, interstate or international arrangements, or through additional expected volunteer capability.
During the reporting period, EMV and sector organisations progressed the assessment of four capabilities:
Operational Management – led by EMV
Fire Management and Suppression – led by CFA
Fatality Management – led by the Victorian Institute of Forensic Medicine (VIFM)
Search and Rescue – led by FRV and VicPol.
EMV also developed a summary report template to provide a consistent view of findings across completed assessments.
In November 2022 SCRC noted the first three summary reports (for Fire Management and Suppression, Fatality Management, Search and Rescue). EMV has faced challenges obtaining comprehensive data for the Operational Management assessment, which remains ongoing as of July 2023.
Initial discussions on the next series of assessments have commenced – Critical Transport (led by DTP) and Economic Recovery (led by DJSIR).
IGEM assessment and continued monitoring
IGEM assesses Action 4.4 as complete based on the progress made to implement the Emergency Management Capability and Capacity Project between 2019 and June 2022 (the end of SAP Update #4).
IGEM notes that work on the project is ongoing and that the project will continue to support the sector to understand its capability. There is no equivalent action in SAP 2022–25 or SAP 2023–26, however IGEM will continue to monitor and report on the project through its implementation monitoring of Action 15.2 in response to IGEM's 2019–20 Victorian Fire Season Phase 1 report.
Finding
IGEM considers that this action has been implemented.
SAP UPDATE #4 2019–22 ACTION 4.5 -
LONG-TERM COMMUNICATIONS PLAN
Implement the sector’s long-term communications plan, with the longer-term aim of moving to a single integrated voice network and sector-wide broadband data service. Review and adapt rollout in line with social, technical, industry and economic environments, and emerging technologies where appropriate.
Commencement 2015–16 Q1
Planned completion 2020 (revised to December 2022)
Lead agency EMV
Status Complete
The EMOC Program is a long-term plan to maintain, consolidate and expand the operational communications capability of Victoria's emergency services organisations.
The program aims to move operational communications from pagers, radios and mobile data terminals operating on multiple networks to smart devices operating on a single PSMB network.
The EMOC Program involves organisations including AV, Corrections Victoria, CFA, DEECA, ESTA, FRV, LSV, VICSES and VicPol.
IGEM assessment and continued monitoring via SAP 2022–25
IGEM assesses SAP Update #4 2019–22 Action 4.5 as complete based on work undertaken to implement the EMOC Program between 2019 and the end of the reporting period in June 2022.
IGEM continues to monitor the EMOC Program rollout via SAP 2022–25 Action 2.6 which continues on from SAP Update #4 Action 4.5. The progress summary for SAP 2022–25 Action 2.6 on page 47 of this report provides a consolidated 18-month progress summary for the period January 2022 to June 2023.
Finding
IGEM considers that this action has been implemented.
SAP UPDATE #4 2019–22 ACTION 4.6 - EM-COP
THREE YEAR PLAN
Develop and implement a three‐year plan to strengthen Emergency Management Common Operating Picture (EMCOP), including improving the interoperability, use, access and consolidation of emergency management information systems and data. The plan should also include the delivery of common principles, standards, definition, systems of work and the agreements required to define the responsibilities for the delivery of data sets.
Commencement 2015–16 Q1
Planned completion 2020
Lead agency EMV
Status Closed
EM-COP is an online communication, planning and collaboration tool that enables emergency management personnel to quickly share information and make strategic decisions. It provides access to real-time information and supports intelligence gathering and the delivery of public information and warnings during emergencies.
EMV updates EM-COP as part of its ongoing maintenance, however IGEM understands that no three-year plan to strengthen EM-COP was developed or implemented under this action by the end of the reporting period in June 2022.
IGEM notes that work is planned under SAP 2023–26 Action 2.1 to commence a discovery phase for the next generation of EM-COP (refer to page 39 of this report). IGEM will provide an update on this activity in its next progress report.
Finding
IGEM considers that this action has not been implemented.
Emergency Management Planning Assurance
Report 2023
An analysis of Victoria's emergency management planning arrangements, through examination and comparison of the SEMP, REMPs and MEMPs
Executive summary
Since their introduction, the Inspector-General for Emergency Management (IGEM) has observed the implementation of the emergency management planning reforms resulting from the Emergency Management Legislation Amendment Act 2018 (EMLA Act). These planning arrangements (arrangements) seek to reduce the likelihood, effects and consequences of emergencies underpinned by collaboration, efficiency and a focus on community emergency management planning.
IGEM has a responsibility to monitor, review and assess emergency management planning at a system level under section 64(1)(gb) of the Emergency Management Act 2013 (the Act). In late 2022, IGEM recognised the value and appropriate timing of an assurance project to foster continuous improvement as per its objective under the Act. The emergency management planning assurance project (the project) analysed the State Emergency Management Plan (SEMP), Regional Emergency Management Plans (REMPs) and Municipal Emergency Management Plans (MEMPs) to identify and share better practice and improvement opportunities for the maturing arrangements.
It is important to emphasise that this project is not an assessment of compliance against the Act or the Guidelines for Preparing State, Regional and Municipal Emergency Management Plans (the Ministerial Guidelines). The project methodology is provided at Appendix A, with Appendix B listing the emergency management plans analysed as well as the date of their last update as at the time of analysis.
IGEM commenced this project with the knowledge and expectation that many plans were not yet updated to reflect EMLA Act reforms. As analysis progressed against key themes based on IGEM's previous assurance reports, observation of key committee meetings (such as the Emergency Management Planning Reform Inter-Departmental Committee and its successor, the State Emergency Management Planning Committee), the Act, the Ministerial Guidelines and national guidance47, it was clear that the plans contained ample better practice, whether updated or not.
IGEM makes a number of findings throughout this report and supports these with better practice examples identified from various plans to foster continuous improvement (refer to Appendix C for a full listing). It is important to emphasise that both the findings and highlighted examples of better practice are the outputs of a point-in-time analysis of plans that were publicly available in October 2022.
Some of the key better practice and associated improvement opportunities identified are:
Purpose, audience and usability — Plans at all tiers describe their aim (purpose) to document provisions for emergencies and reflect similar priorities. The audience for plans is less consistent. Some specify a target audience, although IGEM infers that most are intended for staff with emergency management roles, rather than a general audience, due to their complexity, choice of language and length. IGEM notes that plans are publicly available as required under the Act. IGEM observes that specifying the audience would allow plans to be better refined for their target audience — for example, using shorter, more contemporary formats to engage with a general readership. IGEM notes the importance of plans being prepared in a way that reflects community emergency management planning as per section 60AA(1)(c) of the Act.
There is an opportunity when the Ministerial Guidelines and Statement of Assurance Templates are next reviewed to ensure that they clearly provide guidance on the audience and purpose for emergency management plans, as well as how the plans are to be used and by whom.
47 Emergency Planning Handbook (Australian Institute for Disaster Resilience)
Risk assessment and methodology — IGEM finds that the majority of plans outline risk management details, including the methodology and outputs of risk assessments. At the state tier, IGEM notes that a Victorian Emergency Risk Assessment project is underway which aims to produce an assessment and related methodology by December 202348. This risk assessment is being enhanced with modelling to benefit future planning, taking into consideration observed and projected changes in the climate. At the regional tier, the completed 2021 Regional Emergency Risk Assessment should form a key component for inclusion in updated REMPs. At the municipal tier, IGEM notes the Municipal Emergency Management Planning Committees (MEMPCs) already successfully highlight the importance of the Community Emergency Risk Assessment (CERA) process in their planning efforts.
Alignment of plans — IGEM positively observes all tiers of planning align with the intent of the arrangements. Plans contextualise their place in the arrangements and complement each other well. In contrast, community emergency management planning features less despite its importance to the overall arrangements as expressed by section 60AA(1)(c) of the Act. IGEM encourages MEMPCs to integrate the community tier in their planning hierarchies and further reflect on whether there are communities in their municipal district(s) that can be supported to produce Community Emergency Management Plans, either with the MEMPC or in collaboration.
Connection with other emergency management sector (the sector) arrangements — REMPs reference a number of key sector doctrine. As some REMPCs already emphasise the existence and importance of critical infrastructure assets in maintaining community wellbeing, there is an opportunity to deepen their connection to the Critical Infrastructure Resilience (CIR) arrangements. IGEM heard from stakeholders that the regional tier is best placed to drive enhanced understanding of risks and fostering of relationships that can be leveraged during emergency events. IGEM notes that there are limitations to the extent of information on critical infrastructure (as defined by section 74B of the Act) that can be shared within plans, and sensitive information should not be included in public-facing plans.
Mitigation and recovery provisions, roles and responsibilities — These concepts are well described in plans at all tiers. Often recovery processes, services and considerations are structured under the SEMP's four recovery environments. One area for improvement is the consistent attribution of the correct agencies across regional and state recovery coordination. There is also an opportunity to consider and reference the Adaptation Action Plans for climate change as these are intrinsically linked with emergency management.
Community resilience and shared responsibility — Many MEMPs offer definitions of community resilience and outline resilience-building strategies. This better practice could be built upon at regional and state levels to more widely reflect this concept. There is also an opportunity for the SEMP and REMPs to reference and reflect the Community Resilience Framework for Emergency Management in future plan updates. Conversely, shared responsibility is well described in the SEMP, though featured less in REMPs and MEMPs. Appropriately reflecting both concepts at all tiers and linking to specific actions or activities may assist in further embedding them into practice.
Other definitions and terminology — The concept of vulnerability in plans is consistent with the Vulnerable People in Emergencies Policy (2018). Many MEMPs enhance their perspective of vulnerability by considering human factors such as preparedness, socioeconomic status, knowledge, and experience. IGEM welcomes this more dynamic exploration of vulnerability, which complements work such as the 'Victorian shared responsibility framework for people most at risk in emergencies' pilot project. There is opportunity for preparers to ensure that future updates reflect contemporary terminology and considerations from this project once it is finalised and implemented.
Identifying and incorporating lessons — Preparers of emergency management plans describe how reviews shape their processes and promote the benefits of effective lessons management. While plans show an appreciation of and commitment to lessons learning, examples of specific lessons are absent. More detailed amendment or revision histories reflecting specific lessons identified from emergency events, exercises, assurance activities and other important sources of learning would better clarify how plans have developed and improved over time.
48 IGEM notes that the Victorian Emergency Management Sector Strategic Action Plan 2022–25 stated that the VERA project would be delivered by June 2023.
Consultation outside of government — IGEM notes, based on information within the plans, that there is potential for deeper consultation with the community emergency management planning tier, nongovernment organisations and critical infrastructure owners and operators. This would build on the better practice from municipal districts that already support production of Community Emergency Management Plans and facilitate the exchange of lessons and expertise.
Validation through exercising — Many REMPs and MEMPs do not document past exercise scenarios or lessons learned from them. Better practice is identified in the Southern Metro region, where all MEMPs contain a historical list of exercises. This is not the norm across other regions. Despite this, most plans identify options for exercising and its benefits. Where exercises are recorded on the plans, IGEM observes they are mainly discussion–style exercises. IGEM notes an opportunity to develop (over time) from discussion formats to more complex and rewarding deployment–style exercises.
During committee meetings over recent years, IGEM has observed resourcing challenges that are being felt and raised as a frequent topic of discussion. IGEM acknowledges the efforts by all organisations and their staff, at all tiers, in operationalising the arrangements. This is especially the case as staff contribute to this work in addition to their business-as-usual roles.
While stakeholders agreed that the better practice identified in this report will contribute to plan improvements, they felt constrained by funding and resourcing challenges to implement them effectively. This is especially the case for supporting development of Community Emergency Management Plans, designing and conducting exercises, and implementing lessons identified from emergency events and exercises into plans. In addition, as part of the emergency management planning reforms, responsibility for municipal-level planning was transferred from councils to the multi-agency MEMPCs. However, through this project IGEM heard from a number of MEMPC Chairs that councils disproportionately carry the burden of developing, improving and exercising MEMPs.
IGEM does not expect that the better practice and opportunities for improvement identified are immediately included in updated plans – improvement takes both resources and time. Given iterative and continuous review and updates of plans are embedded into the arrangements, the better practice and continuous improvement opportunities outlined herein should be considered for future updates.
To support and assist planners at the regional and municipal tiers, IGEM strongly encourages the Emergency Management Planning Resource Library be reviewed regularly to ensure it includes better practice guidance material and all relevant and contemporary state-level policy documents and frameworks. This should be complemented with timely sharing of information across all tiers to support preparers' awareness and understanding of contemporary policies, better practice and risk landscapes.
1
Usability of plans
1.1 Usability, audience and purpose
State and regional tiers
The State Emergency Management Plan (SEMP) clearly positions itself as a document that captures overarching emergency management planning arrangements (the arrangements), with detail for specific hazards in sub-plans as appropriate. The page ‘How to navigate the State Emergency Management Plan’ provides effective guidance on how to access its different sections. Although the SEMP does not explicitly identify its audience, the emergency management sector (the sector) is its primary and most relevant audience.
The 2021 review streamlined the SEMP through improving definitions and clarifying arrangements, resulting in an easier to use document for a wider range of audience. The SEMP now provides for an integrated, coordinated and comprehensive approach to emergency management through documenting state-level provisions for mitigation, response and recovery. To this end, the SEMP's Roles and Responsibilities section links to Emergency Management Victoria's (EMV) website for a comprehensive listing applicable across all phases of emergencies.
Regional Emergency Management Plans (REMPs) summarise arrangements and risks effectively without solely combining the Municipal Emergency Management Plans (MEMPs) for their region. These plans generally have limited operational detail, as appropriate for plans at the regional tier, instead articulating a high-level approach that also describes roles and responsibilities.
Many REMPs aim to achieve effectiveness on a platform of shared responsibility, facilitate safer and more resilient communities, and deliver a coordinated and integrated approach enhanced by community involvement. Some REMPs have success criteria in line with the principle of continuous improvement, however IGEM understands these are yet to be measured and reported against. Once this occurs, it will introduce increased accountability for the plans and better define their purpose and future strategic direction.
In most instances, the intended audience for REMPs is unclear. However, the level of familiarity with the arrangements required to benefit from them (implied by their complexity and length) suggests that these plans are written for emergency management roles. A smaller number of REMPs are written in a straightforward way more appropriate for general readership. For example, the Hume REMP explicitly states that it does not aim to be a tactical plan and has been deliberately updated to this end.
REMPs aim to document agreed emergency management arrangements for mitigation, response and recovery, and define the roles and responsibilities of stakeholders at the regional level. REMPs are positioned as enablers for the municipal tier, summarising risks, arrangements, and areas of opportunity, supporting Municipal Emergency Management Planning Committees (MEMPCs) to fulfil their obligations, and coordinating regional resources.
Many REMPs also seek to:
support efficiency and effectiveness on a platform of shared responsibility and interoperability to deliver community-centred outcomes
build safer and more resilient communities through engagement and connectedness with individuals, groups and broader society
ensure a coordinated and integrated approach with a focus on community involvement in planning.
Finding 1 — State/Regional
IGEM finds that the State Emergency Management Plan offers effective guidance on how to navigate the plan and positions itself clearly as a document that captures overarching state emergency management arrangements.
Regional Emergency Management Plans detail a high-level approach that summarises regional arrangements without solely amalgamating Municipal Emergency Management Plans in their region. In addition, the inclusion of aspirational success criteria in some REMPs to guide future planning demonstrates alignment to the principle of continuous improvement.
Finding 2 — State/Regional
IGEM finds that, based on their content and format, the SEMP and REMPs are intended as entry point documents for staff with emergency management roles. While these plans are publicly available as required under the Emergency Management Act 2013, most are developed with the sector as the intended audience (as opposed to a general audience).
Municipal tier
The usability of MEMPs is extremely varied, mainly centred around:
Level of tactical and operational detail — All MEMPs have a level of operational detail, especially for common municipal emergency management roles (such as that of the Municipal Recovery Manager) and priorities for each emergency phase. Mostly, MEMPs do not prescribe a step-by-step approach, instead offering broad guidance. However, a minority are very tactical in nature, detailing small-scale actions during and after emergencies (such as procedures for the removal of burnt-out cars or the disposal of deceased livestock). Some MEMPs have deliberately removed such operational detail to favour a principles-based approach. The Mitchell Shire MEMP is an example of this, explicitly stating that it is not to be used as an operational manual. IGEM notes feedback from some MEMPCs that their MEMP is supported by a range of detailed sub-plans and standard operating procedures that are hazard-specific, allowing it to assume the position of a strategic document. As the arrangements continue to mature, further standardisation in this area is advisable so that the role of MEMPs in the arrangements are well understood and consistently applied.
Activation requirements —There is inconsistency as to whether MEMP provisions are always in force or require formal activation in response to (or anticipation of) an emergency event. This does not seem to relate to whether or not plans are updated and is not always consistent among MEMPs within the same region. Some MEMPs list significant emergencies that require its activation. IGEM notes that REMPs state their plans come into effect once published and remain in effect until superseded, implying that they are always active.
Plan length — All regions have examples of MEMPs in excess of 100 pages in length that are seemingly intended to be read as a complete document. IGEM notes the possible adverse effect on community interest for such detailed plans. Conversely, some updated plans such as Corangamite Shire's MEMP present content in a contemporary and concise way through effective use of infographics and design. This is achieved through the separation of complementary plans and operational details such as council's emergency procedures from the MEMP. Several MEMPs in the Eastern and North West Metro regions (cities of Knox, Manningham, Melbourne and Yarra,) also use tables, diagrams and infographics to deliver content in a more engaging way, while retaining content common to most other MEMPs. Warrnambool City's MEMP utilises another strategy, publishing in sections online — rather than a single plan with hundreds of pages. This allows readers to direct their attention to the areas relevant to them. IGEM notes that MEMPs which adopted a contemporary presentation and shorter length are still able to reflect necessary emergency management principles and arrangements, despite being less descriptive.
The usability of plans as detailed above closely relates to the concept of audience. Across the municipal tier, the target audience for MEMPs is often unspecified or unclear. As with plans at the other tiers, a reliance on technical language, varied explanations of emergency management concepts, and overall length suggest an intent to capture arrangements for sector audiences. Even within the same region, plan length (a key contributor to implied audience) varies. For example, the Grampians region encompasses the MEMPs for West Wimmera and Yarriambiack Shires, at 25 and 33 pages respectively, but also Pyrenees Shire numbering 374 pages. In North West Metro region, plan length ranges from 40 to over 300 pages. Feedback from MEMPCs has signalled that further standardisation of the arrangements (for example, the development of a MEMP template) may resolve areas of ambiguity such as the intended purpose and audience of MEMPs, and drive greater consistency in the arrangements.
Some MEMPs do specify their intended audience. The Pyrenees Shire MEMP states it is primarily for emergency personnel. Where the audience is specified in other MEMPs, it is generally also in favour of sector personnel – for example, the Borough of Queenscliffe MEMP outlines that it has been structured to ensure operatives can find the information they need.
Strathbogie Shire outlines its MEMP is intended for ‘emergency managers and incident controllers and anyone who has an interest in emergency management', which raises the potential of a community audience. This is validated by EMV's emergency management planning reform ‘Transition guide for reforming municipal emergency management planning arrangements’49, which states that the audience for MEMPs is 'any stakeholder who has a role and responsibility in mitigation, response and/or recovery'. A broader view of possible audiences is better practice for plan preparers, especially as the SEMP identifies under its shared responsibility section actions for community members during all phases of emergencies During IGEM's consultation for this report, some MEMPCs raised that further guidance around the target audience of MEMPs is needed, including whether this can (or even should) vary between municipal districts based upon demographics, risk profiles and other factors.
A small number of MEMPCs state that they have revamped their plans with a community audience in mind. For example, the Mitchell Shire MEMP highlights the removal of operational details from its plan, instead placing this in sub-plans and other documents. During consultation for this report, multiple MEMPCs reflected that being able to capture detailed information in complementary plans and council standard operating procedures allows the MEMP to be shorter, more focused, and more strategic in nature. IGEM notes the Mitchell Shire MEMPC considers its plan to be undergoing a similar transition, from a traditional ‘operational manual’ to the desired future state of a strategic planning document.
As all MEMPCs are required to refresh their plans by the end of 2023, IGEM considers that it will be beneficial for them to reflect on where to position these plans (tactically, operationally or strategically) and for the benefit of whom. The transition guide and other advisory material introduced by EMV since the reforms commenced can assist preparers to produce a contemporary suite of plans. However, IGEM acknowledges MEMPC feedback that requests additional guidance around what plans should include and how to address areas of ambiguity such as purpose, audience, and shared responsibility.
49 Transition Guide for reformed municipal emergency management planning arrangements with FAQs (emv.vic.gov.au)
Agency feedback pointed to the benefit of additional guidance at the regional planning tier, to ensure consistency and make explicit contemporary requirements for plan structure and content. As guidance materials, particularly the Guidelines for Preparing State, Regional and Municipal Emergency Management Plans (Ministerial Guidelines) and Statement of Assurance templates are reviewed, IGEM encourages that feedback around areas requiring greater clarity is considered to ensure the municipal and regional tiers are well supported to develop fit for purpose plans.
IGEM notes that despite many MEMPs being pitched implicitly or explicitly for the sector, there is benefit in communities being considered as key audiences. This aligns with section 60AA(1)(c) of the Act.
IGEM also recognises challenges with designing plans to meet the needs of multiple audiences. One strategy for including the required level of detail without compromising ease of use, is to place technical information in the MEMP's appendices or in sub-plans as appropriate. This was achieved in the Northern Grampians Shire MEMP to great effect. In other better practice, the Hume City MEMP includes a consolidated table of contents with details of the rationale, considerations and background for sections of its plan. Its Prevention and Preparedness section, explains that it ‘details arrangements for prevention and preparedness activities, building community resilience, community engagement and responsibilities'. These explanations assist the reader to better understand the purpose and contents of each section and find the information of relevance to them. The selected approach should be carefully considered — while a highly descriptive plan serves emergency management roles, this level of detail is likely to detract from usefulness for general audiences.
MEMPs are consistent in outlining their aims and objectives. In all cases, the purpose is to detail the arrangements for the prevention of, response to and recovery from emergencies that could occur in their municipal district. All plans, regardless of differences in phrasing, outline the utility of MEMPs for documenting arrangements across all phases of emergencies. The broad objectives of MEMPs are the same, with only minor variations.
These include:
identifying hazards and determine the level of risk within the municipality
implementing measures to prevent or reduce the causes and/or effects of emergencies
managing arrangements for requesting and using municipal resources in response to emergencies
managing municipal resources and resource supplementation when these resources are exhausted
assisting affected communities to recover following an emergency
complementing local, regional and state planning arrangements
supporting local and regional collaboration in preparation, response to and recovery from emergencies
developing and administering programs that reduce the community’s vulnerability to emergencies and increase its capacity for resilience and self-reliance.
IGEM notes Mornington Peninsula Shire's MEMP is one of the few to explicitly define a purpose separate from its aims and objectives, which placed a priority on safety, preservation of life and community resilience. IGEM positively observes that some MEMPCs, such as East Gippsland Shire and Latrobe City, identify their role in promoting resilience and supporting communities to develop recovery processes.
Overall, there is an opportunity when the Ministerial Guidelines and Statement of Assurance Templates are next reviewed to ensure that they clearly provide guidance on the audience and purpose for emergency management plans, as well as how they are to be used and by whom.
Finding 3 — Municipal
IGEM finds that the aims and objectives of MEMPs are extremely consistent, demonstrating a shared sense of purpose and understanding. IGEM encourages additional consideration by MEMPs around supporting community resilience and recovery processes.
Finding 4 — Municipal
IGEM finds that most MEMPs are silent on whether their audience is the sector, the community, or both. There is an opportunity to specifically include the target audience(s) in plans.
Finding 5 — Municipal
IGEM finds that most MEMPs do not offer guidance on their use. To enhance usability, there is an opportunity for MEMPCs to provide explicit guidance in plans on how and when they should be used, and by whom.
1.2 Risk assessment and methodology
State and regional tiers
Risk assessment methodology and currency
The SEMP notes the state level risk assessment aligns with:
National Emergency Risk Assessment Guidelines (NERAG)
the ISO 31000 Risk Management framework (ISO 31000)
the Sendai Framework for Disaster Risk Reduction 2015–2030
the National Disaster Risk Reduction Framework.
The SEMP identifies Emergency Risks in Victoria (2020) as representing the state's highest priority risks, as well as controls and treatments to minimise or manage their impacts and consequences. IGEM notes Emergency Risks in Victoria is based on risk assessment information from 2016–17. This raises potential issues for the SEMP’s ability to depict a contemporary risk landscape, especially as Victoria is affected by projected climate change resulting in rising sea levels, longer bushfire seasons and unstable weather patterns. These impacts will challenge the emergency management sector in many ways, including through the intensification of existing natural hazards such as fires, storms, and floods50. This underscores the importance of contemporary risk assessments at all planning tiers.
As the name suggests, the Victorian Emergency Risk Assessment (VERA) project has been established to review state-level risks and produce a state tier risk assessment process that addresses Recommendation 2 of IGEM’s Review of 10 years of reform in Victoria’s emergency management sector IGEM further notes that EMV is working closely with the Department of Energy, Environment and Climate Action (DEECA) – formerly Department of Environment, Land, Water and Planning (DELWP) – and the Commonwealth Scientific and Industrial Research Organisation to enhance this review with climate modelling to benefit future planning. The VERA project is scheduled for completion by December 202351 REMPs generally supply detailed information about their risk assessment processes, with many aligning them to NERAG and the Victorian Preparedness Framework (VPF). Some REMPs — including for the Grampians, Gippsland and Eastern Metro regions — also reflect on the challenges of climate change impacts or reference related policy such as Victoria's Climate Science Report 2019
50 According to DELWP’s Victoria’s Climate Science Report 2019
51 Although a completion date of December 2023 was provided for the VERA project by EMV at the State Emergency Management Planning Committee, IGEM acknowledges that the sector Strategic Action Plan 2022–25 has a delivery date of June 2023.
However, some provide little to no explanation of the actual risk methodology used or outcomes from the last regional risk assessment. Risk assessments in REMPs (when included) are generally up to date considering that plans and their risk assessments are reviewed on three-year timetables. Some REMPCs have not conducted stand-alone risk assessments, instead supplementing their plan with the Regional Emergency Risk Project 2014/15 report, which produced risk and resilience profiles for each emergency management region.
Although these REMPs specify that they should be read in conjunction with that region’s Environmental Scan Report, the absence of a stand-alone regional risk assessment affects the plan's currency. IGEM acknowledges stakeholders' feedback on reliance of input from operational personnel and subject matter experts, and that agency participation in risk assessment reviews may have been constrained due to the frequency and severity of emergencies since the 2020 introduction of REMPs.
Positively, IGEM notes that the 2021 Regional Emergency Risk Assessment (RERA) process included a series of workshops that assisted all REMPCs to develop risk registers and evaluate contemporary regional risks. This process identified extreme risks including electricity supply disruption, telecommunications disruption, bushfire and terrorism.
There is an opportunity for REMPs to reference the RERA process as a part of their risk assessment considerations. This is especially the case as the VERA project's state-level risk assessment will be underpinned by the same methodology as RERA (aligned with NERAG and ISO 31000). Due to this close relationship between the regional and (future) state tier processes, it would benefit alignment for REMPs to reference RERA in their risk assessment sections and use its principles to strive towards contemporary assessments.
Finding 6 — State/Regional
The SEMP currently references a statewide risk assessment based on information from 2016-17. The VERA project, which has been established to address Recommendation 2 of IGEM’s Review of 10 years of reform in Victoria’s emergency management sector, will produce a state-level risk assessment, and is due for completion in 2023.
IGEM finds that while some REMPs reference the Regional Emergency Risk Project 2014/15 report, there is opportunity for the RERA process conducted in 2021 to also be included in future updates, especially noting the relationship between RERA and VERA risk assessment methodology (when the latter is introduced). This would promote risk assessment alignment between tiers. Continuous improvement of REMPs could be further supported through the inclusion of risk assessment outcomes.
Use of risk assessments in plans
The SEMP specifies that Emergency Risks in Victoria (2020) informed its development. It also states that the outputs from this report are intended to inform strategic decisions to allocate resources for risk treatment, and emergency mitigation and preparedness measures. Table 1 shows the key risks identified in the Emergency Risks in Victoria, and if an associated SEMP Sub-Plan has been developed. The table show that the majority of risks have an associated sub-plan, as well as some sub-plans existing despite the associated risk not being identified in the report as a key emergency risk. These include:
the SEMP Cyber Security Sub-Plan
the SEMP Public Transport Disruption Sub-Plan
the State Tsunami Sub-Plan.
Table 1: Key risks identified in the Emergency Risks in Victoria (2020) and associated SEMP Sub-Plans
IDENTIFIED KEY RISK
Bushfire
SEMP SUB-PLAN
SEMP Bushfire Sub-Plan
Earthquake SEMP Earthquake Sub-Plan
Electricity supply disruption
Emergency animal disease
SEMP Energy Sub-Plan
SEMP Animal, Plant, Marine and Environmental Biosecurity Sub-Plan
Emergency plant pest SEMP Animal, Plant, Marine and Environmental Biosecurity Sub-Plan
Flood
Gas supply disruption
SEMP Flood Sub-Plan
SEMP Energy Sub-Plan
Hazardous materials No SEMP Sub-Plan
Heatwave SEMP Extreme Heat Sub-Plan
Liquid fuel disruption SEMP Energy Sub-Plan
Maritime emergency SEMP Maritime Emergencies (non-search and rescue) Sub-Plan
Mine emergency No SEMP Sub-Plan
Pandemic influenza
SEMP Viral (Respiratory) Pandemic Sub-Plan
Storm SEMP Storm Sub-Plan
Water supply disruption No SEMP Sub-Plan
Although the currency of regional risk assessments varies, REMPs demonstrate that planning activities align with and are informed by the full body of municipal risk assessments that sit beneath them. This has allowed hazards for regions at large to be identified, as well as strategic issues that span multiple or all municipal districts. For example, the Barwon South West REMP identifies that its region contributes 22.5 per cent of statewide residual bushfire risk, which makes this a key mitigation priority at the regional level. In many REMPs, there is consideration for threats that affect the capability and capacity of the sector, such as concurrent and cascading emergencies, climate change, emerging technologies, and trends such as an ageing population and decreasing rates of volunteerism.
Municipal tier
Risk assessment methodology and currency
MEMPs are adept at explaining how MEMPCs utilise the Community Emergency Risk Assessment (CERA) process – a five-step framework inclusive of risk assessment and risk treatment in accordance with ISO 31000. Inputs to the CERA process at the municipal tier commonly include emergency events, considerations of vulnerable locations and people, single hazard risk assessments and the input of subject matter experts and community representatives. Many MEMPCs include CERA outputs – such as residual risk tables – in their plans, which demonstrates a connection between risk assessment and planned mitigation activities for the municipal district.
There is some inconsistency between MEMPs about whether materials related to the CERA process should be publicly available, with some omitting this information from the public version of their plans. IGEM notes that the majority of MEMPs do outline their CERA process in detail and include risk assessment outputs in the plan body. Preparers are encouraged to share risk management information where possible due to its likely relevance to community audiences. However, it is acknowledged that certain aspects of planning may be sensitive, and MEMPCs should decide what information is published.
While some MEMPs omit CERA documentation or explanations of the process, the importance of the CERA process to municipal risk management is otherwise evident. Most MEMPs reflect the confidence and capability of MEMPCs in using this process to interrogate opportunities for continuous improvement. For example, the City of Greater Geelong MEMP describes CERA as the ‘main planning tool for the MEMPC.’ Some plans also identify (especially in regions with a history of high-consequence fires) the Victorian Fire Risk Register — Bushfire being used to supplement CERA.
The establishment of a broader base for risk assessment activities is valuable. However, despite the benefit of the CERA process being well-established at the municipal tier, IGEM heard that it also has limitations.
Some MEMPCs informed IGEM that the CERA process relies heavily on the availability of subject matter experts and operational personnel (in particular from the Victoria State Emergency Service). These MEMPCs also observed that hazard identification through the CERA process can be slow-moving — requiring multiple meetings that hinge on agency participation — and subjective. The Victoria University Risk Ownership Framework (2017), which is a planning companion aligned to NERAG, contains a flexible process that may support the strategic risk management. This framework may be useful to MEMPCs as a supplement to their existing risk assessment processes, as it advises how to identify risks through the lens of values (tangible or intangible) that need protection. The framework process itself can be used flexibly to meet the needs of different preparers.
MEMPs specify they are updated on a three-year cycle with minor annual reviews. Although plans mostly provide information about their risk assessments, it is not always clear whether these are current. In some cases, risk assessments are dated years behind the latest full-scale MEMP update, which highlights the importance of a comprehensive, up-to-date risk assessment to provide a foundation for mitigation and community understanding of risk.
Again, IGEM notes the issue of the CERA process relying on operational personnel as one factor in risk assessments not being up to date. Despite this, there are examples of better practice, such as the City of Manningham MEMP, which specifies against each individual risk in the plan when it has been reviewed or assessed.
Finding 7 — Municipal
IGEM finds that MEMPs generally provide information about their risk assessment processes. However, not all municipal risk assessments are up to date, either because this is not specified, CERA outputs are not included, or the risk assessments appear to be dated several years behind the latest full-scale plan review.
MEMPCs should ensure the risk assessment sections of their plans are updated as part of each fullscale review. Where this is not possible, preparers are encouraged to attempt to include the results of the CERA risk assessment once completed, noting its importance and links to other plan content such as mitigation and exercising.
Use of risk assessments in plans
The inclusion of CERA outputs in the plans' body makes clear linkages to municipalities’ mitigation activities. Many MEMPs specify that the CERA process is used to inform planning, introduce treatment and risk action plans, and better educate the community about hazards. In Southern Grampians Shire, the 2017 CERA process identified multiple communities at higher risk from bushfire, which resulted in development of township Community Information Guides. The Grampians region MEMPs also reflect well on the impacts of compounding emergencies, where inter-related hazards cause simultaneous emergencies, such as heat conditions leading to fire and loss of power. Finally, the Murrindindi Shire MEMP is effective at explaining how, while the consequences for certain risks in the municipality are high, current mitigation strategies keep them within a ‘monitor controls’ range.
Finding 8 — Municipal
IGEM finds that the majority of MEMPs are able to demonstrate alignment between their planning and mitigation activities and risk assessment outcomes. This includes using the results of the CERA process to enhance mitigation, direct future planning and highlight emerging issues and trends.
2 Integration of plans
2.1 Alignment of plans
State and regional tiers
All plans reflect the hierarchical, interconnected nature of the emergency management planning framework. The SEMP describes this framework in detail, illustrating arrangements for each tier and how they interact. It also notes the value of locally-led community planning, which is also identified by certain MEMPs, such as for Hepburn Shire in Grampians region.
REMPs are consistent with and contextualise both the SEMP and the MEMPs for their region. Many outline the hierarchy of plans in detail, highlighting that the REMP does not seek to solely group MEMPs together, but address opportunities to enhance outcomes and improve regional capability. Most REMPs demonstrate close alignment with the SEMP, referring to this document for roles and responsibilities rather than including such detail in their own plans.
Many REMPs highlight the value of interoperability within the arrangements.
One example is the pursuit of strong connections between Hume and Gippsland regions to ensure that Alpine Resort Management Board (ARMB) MEMPs are prepared effectively (all six alpine resorts sit in Hume for planning purposes, however Mt Baw Baw alpine resort is located in Gippsland)52
Another example is North West Metro Region Emergency Management Collaboration Group which consists of 14 municipalities within that region and emergency services representatives. Benefits of this arrangement include standardised regional documentation and improved planning for cross-border events.
A similar structure exists in Southern Metro region, where its Municipal Emergency Management Enhancement Group aims to enhance the preparedness of councils to respond to an emergency through providing shared training opportunities. Finally, IGEM notes positively that Loddon Mallee and Eastern Metro REMPs identify community emergency management plans as part of their planning hierarchy, as community planning is not always referenced at the regional tier.
Finding 9 — State/Regional
IGEM finds that the SEMP and REMPs strongly reflect the interconnected nature of the arrangements and contextualise their place within it. The SEMP notes the value of locally led community planning and some REMPs identify community emergency management plans as part of their planning hierarchy; however, this is not always referenced at the regional tier.
52 IGEM notes that since the time of its evidence gathering for this report, the Alpine Resort Management Boards were amalgamated under Alpine Resorts Victoria (ARV) on 1 October 2022.
Municipal tier
MEMPCs universally characterise their plan as a component of the broader arrangements, while also making effective links to sub-plans, the CERA process, and related council activities. For example, in Mansfield Shire, a member of the Woods Point community sits on the MEMPC and reports on the Woods Point and District Community Safety Plan — a sub-plan to the Mansfield Shire MEMP.
In all cases the SEMP (or Emergency Management Manual Victoria, for plans that are yet to be updated) is referred to as the authoritative state-level document for emergency management arrangements, roles and responsibilities. MEMPs effectively describe how they fit with arrangements at local, regional and state levels, including detailed considerations for emergency event escalation once local resources are exhausted. Many, such as the Corangamite Shire MEMP, use graphics to effectively depict planning hierarchies, inclusive of the community planning tier (refer to Figure 1):
MEMPs clearly identify the benefits of collaboration. In many regions, planning clusters share the burden of planning between multiple municipal districts. Examples include in Loddon Mallee region, where the five councils of the Northern Victorian Emergency Management Cluster have developed an integrated MEMP. There are also emergency management groups in the North West and Southern Metro regions that collaborate for the benefits of joint planning and resource sharing.
The Mansfield Shire MEMP highlights that the Mt Buller/Mt Stirling ARMBs benefit from collaborating on a joint MEMP. All ARMB MEMPs emphasise the use of resource sharing protocols, and memorandums of understanding to address resource constraints and limited emergency management capacity. These MEMPs are particularly coordinated with the activities of nearby municipal districts; for example, the Mt Hotham ARMB holds copies of the Alpine and East Gippsland Shire MEMPs, noting that it includes bordering municipalities in exercises where possible. In a similar vein, the Southern Alpine ARMB attends MEMPC meetings for surrounding councils to ensure that mutual support agreements are in place. IGEM encourages continuation of these consultative practices with neighbouring municipal districts now that all alpine resorts are under a single municipal district, within Alpine Resorts Victoria.
Community Emergency Management Plans (CEMPs) are an important input to sector planning, forming part of the framework for emergency management planning detailed in the SEMP, and being an integral support towards the sector vision of safer and more resilient communities. In addition, the SEMP (2021) states that MEMPCs must 'consider community emergency management plans if they have been developed'. IGEM acknowledges the constraint that CEMPs are not regulated by the Act in the same way as MEMPs or REMPs. Instead they are developed with the support of councils and emergency management entities, and in response to local risks – such as a remote township that would be required to meet its own needs in the initial aftermath of an emergency.
While all plans show an appreciation that emergency management planning must be integrated at state, regional and municipal tiers, community planning and CEMPs are not as well-represented.
MEMPs demonstrate awareness of the importance of community connection, however some do not elaborate on the actual community planning tier and whether or not CEMPs exist within their municipality. Some also do not include the community tier in their planning hierarchy graphics along with the state, regional and municipal tiers (although some plans do, such as the City of Melbourne MEMP).
Despite this, some MEMPCs support community emergency management planning to a high degree, and this reflects in their plans. MEMP highlights include:
Rural City of Benalla includes plans by industry entities such as Thales as CEMPs
Mitchell Shire identifies that, while its municipality already has a CEMP for the remote township of Clonbinane, it intends to support the development of additional CEMPs for high-risk communities through its Community Engagement Working Group
Mornington Peninsula specifically comments on the ability for communities to undertake their own localised planning and connect their plans into wider emergency management planning efforts – to assist with this, there is a permanent community representative on its MEMPC.
As part of consultation for this report, IGEM heard from the Wimmera Emergency Management Resource Sharing Partnership. This group includes the Horsham Rural City and Hindmarsh, West Wimmera and Yarriambiack Shire councils (Partner Councils). IGEM acknowledges the region’s better practice including community representatives on each of the Partner Council MEMPCs, the existence of Community Plans for Wartook and Laharum, and other CEMPs under consideration for areas where there is a high level of risk. IGEM encourages linking their CEMPs with the respective MEMP.
IGEM also received information from the Moorabool Shire MEMPC that funding received through Bushfire Recovery Victoria for the June 2021 storm impacts allowed it to conduct CEMP facilitation workshops in two communities53. IGEM acknowledges the significant resourcing required to support community resilience and recovery processes and upholds this initiative as a better practice example.
In other better practice, the East Gippsland Shire MEMP has identified a proliferation of over 40 Local Incident Management Plans (which predate the EMLA Act reforms), in its municipality since 2010, which it depicts as meeting community emergency planning obligations in a similar way to CEMPs (Figure 2):
53 Bushfire Recovery Victoria has now transitioned to Emergency Recovery Victoria - About Emergency Recovery Victoria | Victorian Government (www.vic.gov.au)
Many of these plans are for the Omeo Region of East Gippsland, a geographically diverse area of small townships that were heavily impacted by 2003 and 2019–20 bushfire events. IGEM observes that the Omeo Region has a Community Disaster Resilience Plan encompassing all of its townships, with a stated goal to ‘represent the gap between community capability and agency expectations,’ noting that while communities possess local knowledge, there remain areas where vulnerabilities exist (such as communications, power, and road closures) that can be addressed alongside council and agencies.
IGEM positively regards the work of the East Gippsland Shire MEMPC in including extensive detail on community emergency planning in its MEMP. This is in keeping with Part 6A of the Act, which states that in preparing municipal emergency management plans, MEMPCs ‘must have regard to any relevant community emergency management plan’. IGEM encourages MEMPCs to consider CEMPs in their municipality (if any) to ensure that their MEMPs are up to date and meet community needs. IGEM received feedback from MEMPCs regarding the resource burden for councils to support the development of formal CEMPs. However, feedback from MEMPCs agreed and acknowledged that regardless of the form of community emergency management planning, it should still be considered in the MEMPs.
Finding 10 — Municipal
IGEM finds that MEMPs strongly reflect the interconnected nature of the arrangements and contextualise their place within them, providing extensive detail on interoperability, resource-sharing and joint planning arrangements that support their alignment to each other.
Although community emergency planning is less featured, some plans do consider the community tier, which is better practice aligned with the principle under section 60AA(1)(c) of the Act. IGEM encourages MEMPCs to integrate the community tier in their planning hierarchies and reflect on whether there are communities in their municipality that can be supported to undertake emergency management planning, either independently with the MEMPC or as a collaboration between multiple townships with similar risks.
IGEM recognises the additional resource burden associated with supporting communities to develop CEMPs and notes there may be opportunities to leverage existing community engagement and educational programs to promote and encourage the development of CEMPs.
Figure 2: Local Incident Management Plans in East Gippsland (Source: East Gippsland Shire MEMP).
2.2 Connection with other emergency management sector arrangements
State and regional tiers
The SEMP references doctrine such as the VPF and its five core capability elements of people, resources, governance, systems and processes. Aligning the SEMP Roles and Responsibilities to the VPF provides the sector with an avenue to demonstrate its capability. The SEMP also references the Natural Disaster Financial Assistance (NDFA) scheme, a cost-sharing agreement available to help local government relieve the financial burden imposed by natural disasters, as well as the Critical Infrastructure All Sectors Resilience Report54
IGEM observes that connections between emergency management planning and critical infrastructure resilience (CIR) arrangements could be of particular value, delivering benefits such as mutual enhanced understanding of risks and fostering of relationships that can be leveraged during emergency events. IGEM heard from stakeholders that the regional tier is better placed than the municipal tier to work closely with industry partners in the planning process to achieve this, as discussed further in this section.
REMPs identify a range of supporting and supplementary legislation, doctrine and guidance such as:
Critical Infrastructure All Sectors Resilience Report (2018), which overviews risk and resilience improvement initiatives for Victoria's eight critical infrastructure sectors
Emergency Risks in Victoria (2014), predecessor to Emergency Risks in Victoria (2020)
Some REMPs make specific references to CIR, such as how disruptions in one place can have effects elsewhere. This resembles thinking around interdependencies between sectors and the growing impact of cascading and compounding emergencies. The Eastern Metro REMP includes an attachment that outlines critical infrastructure within the region. Similarly, the Hume REMP contains a regional profile which references its infrastructure across the eight critical infrastructure sectors.
IGEM notes that there are limitations to the extent of information on critical infrastructure (as defined by section 74B of the Act) that can be shared within plans, and sensitive information should not be included in public facing plans.
Finding 11 — Regional
IGEM finds that while REMPs reference a number of key sector doctrine, there is an opportunity for them to deepen their connection to the critical infrastructure resilience arrangements — given the importance of continuity of supply of these services to community functioning — to drive enhanced understanding of risks and fostering of relationships that can be leveraged during emergency events.
54 Critical Infrastructure All Sectors Resilience Report available at emv.vic.gov.au/critical-infrastructure-resilience.
Municipal tier
MEMPs differ in their level of connection to other sector arrangements regarding critical infrastructure. Although some MEMPs already specify the role of critical infrastructure owners and operators during an emergency, this is a potential key area for greater collaboration.
The Hume City MEMP has a specific section on the critical infrastructure in its municipal district, and the Alpine and Mansfield Shire MEMPs are some of the few across regions to have a detailed overview of CIR arrangements, outlining the regulatory environment (such as Part 7A of the Act) and referencing critical infrastructure in their municipal districts.
As outlined above, IGEM notes that there are limitations to the extent of information on critical infrastructure (as defined by section 74B of the Act) that can be shared within plans, and sensitive information should not be included in public facing plans. However, IGEM encourages working closely with industry partners in the planning process to drive enhanced understanding of risks and fostering of relationships that can be leveraged before, during and after emergency events. IGEM heard from MEMPCs that many lessons identified from the floods and storms in 2022 emphasised the importance of critical infrastructure to re-establish community connections, communications, and to assist agency response, and councils to undertake relief and recovery activities.
IGEM observed a better practice example in the Indigo Shire MEMP, which notes the link between the availability of essential services and a community’s ability to recover from an emergency. This MEMP also outlines that the Water, Transport and Communications sectors are dependent on the Energy sector to deliver their services. This reflects contemporary thinking around the risks associated with the Energy sector (electricity, gas and liquid fuels sub sectors) being an upstream dependency for many other critical infrastructure sectors.
Despite these examples, a greater connection of CIR considerations to municipal planning would enhance awareness of risk, as well as the sharing of better practice and lessons. In the Frankston City MEMP, a responsible entity’s emergency risk management plan as prepared under Part 7A of the Act is referenced as an example of a complementary plan to the MEMP, which IGEM notes as better practice.
Another possible model for greater inclusion would be for MEMPCs to include CIR owners and operators in their meetings to benefit from their advice in planning. This is already done by the Moira Shire MEMPC, which notes that CI providers such as Regional Roads Victoria can be included in meetings ‘as needed.’
It is clear that stronger links to CIR would fold important considerations into planning and improve understanding of local critical infrastructure assets. However, it may not be feasible for MEMPCs to have critical infrastructure representatives attend meetings regularly or at all due to the day-to-day role demands and the commitment that municipal planning processes may require of them.
Therefore, MEMPCs are encouraged to solicit advice from critical infrastructure representatives on matters relevant to their expertise on as-needs basis. As IGEM heard from stakeholders, the regional tier is best placed to work closer with industry partners to drive enhanced understanding of risks and foster relationships that can be leveraged before, during and after emergency events. IGEM notes the need for information to filter through to the municipal tier from such regional-level collaboration should it occur.
MEMPs demonstrate a reasonable degree of connection to other sector arrangements, especially those related to specific hazards. In Hume region multiple MEMPs make connections to Victorian Government departmental resources for specific emergency threats (such as Agriculture Victoria for exotic animal diseases information), and in Grampians region, multiple plans refer to emergency provisions in the Victorian Animal Welfare Plan and its municipal counterparts. By cultivating an even broader consideration of other government policies, strategies and arrangements, MEMPCs can ensure their plans connect to wider emergency management practice, reflect contemporary thinking and consider emerging risks.
Finding 12 — Municipal
IGEM finds that for MEMPs, there is an opportunity for stronger connections with other sector arrangements, including in particular critical infrastructure resilience (CIR) arrangements.
The potential benefits of increased ties with CIR arrangements includes a heightened mutual understanding of risk between plan preparers and CIR owners/operators, exchange of lessons and better practice, and efficiencies in planning and exercising driven by industry expertise. However, IGEM notes that the regional tier may be best placed to work closer with industry due to the demands and commitment that municipal planning may require of critical infrastructure representatives. Thereafter, it is important for the information to filter through to the municipal tier to assist with planning.
3 Consistency of terminology, roles and responsibilities
3.1 Mitigation and recovery provisions, roles and responsibilities
State and regional tiers
Mitigation provisions, roles and responsibilities
The SEMP defines mitigation as ‘the elimination or reduction of the incidence or severity of emergencies and the minimisation of their effects', and provides examples such as land-use planning, building and maintaining infrastructure, and building community awareness of risk. IGEM positively observes that all of these examples were found in plans at other tiers, which proves this concept to be well-promoted and consistent.
Given the impacts of climate change on Victoria's weather, hazard landscape and way of life now and into the future, there is potential for plans at all tiers to also consider initiatives that seek to reduce these impacts. The Victorian Government's Adaptation Action Plans (AAPs) cover seven identified systems — including Built Environment and Natural Environment — and the challenges responding to climate change. They also outline current work underway to address these challenges as well as key priorities for 2022–26.
The SEMP details agency roles and responsibilities against the state-significant emergency risks (for example, the Australian Energy Market Operator’s role in applying market mechanisms to mitigate electricity supply disruption). The SEMP also lists individuals and households, business and community as having roles for mitigation at the municipal level — albeit not carrying the same legislative obligations but in the spirit of shared responsibility. For example, the SEMP (2021) outlines individuals and households should find out more about potential risks in their environment and take protective measures, such as having appropriate insurance. IGEM notes stakeholder feedback that agency planning around roles and responsibilities in the SEMP has been challenged by the pace of change, driven in part by multiple concurrent large-scale emergencies. IGEM highlights the importance of role clarity to ensure that responsibilities during emergencies are understood in advance by agencies and can be planned for and fulfilled capably.
Mitigation features to some degree in all REMPs, though only some provide a standalone definition. For example, the Loddon Mallee REMP describes an environment where mitigation activities occur across a broad range of businesses and agencies as part of normal working arrangements.
REMPs that define mitigation do so in a way consistent with the SEMP, with multiple REMPs defining it as 'actions taken to eliminate or reduce the incidence and severity of emergencies and minimise their effects' and providing examples that include formulating policy, maintaining infrastructure, and facilitating education and engagement initiatives.
Some REMPs that do not define mitigation still refer to the SEMP definition, citing relevant examples of mitigation activities such as land reviews for fire and flood risks and building redundancies into critical infrastructure assets. These plans also outline that mitigation at regional level involves reviewing emergency risk assessments and collaborating with risk owners. Overall, mitigation is well represented in REMPs, with opportunities to define and explain it more fully.
REMPs generally indicate that, although they have a role in providing information and guidance to risk owners, mitigation responsibilities ultimately fall to individual organisations or agencies listed in the SEMP. There is an acknowledgement in some REMPs that, outside of formally defined responsibilities, optimal mitigation arises from a broad collaboration between government, industry and the community. In particular, the Hume REMP frames mitigation as a collective responsibility between:
risk owners to manage their own risks
MEMPCs to undertake mitigation on a municipal scale
REMPCs to build a regional picture of risk and facilitate collaboration.
Finding 13 — State/Regional
IGEM finds that the concept of mitigation at state and regional tiers is consistent, revolving around actions taken to eliminate or reduce the incidence and severity of emergencies and minimise their effects. The SEMP and REMPs identify their roles in risk mitigation, while identifying optimal mitigation stems from the shared responsibility concept of actions taken at all levels by all relevant actors.
Recovery provisions, roles and responsibilities
The SEMP defines recovery as the 'assisting of persons and communities affected by emergencies to achieve a proper and effective level of functioning', and references both the National Principles for Disaster Recovery as well as the (Victorian) Resilient Recovery Strategy. The SEMP promotes four, key environments (social, economic, built, natural) as a means to plan, monitor and evaluate areas of recovery, and MEMPs especially use these in this way. The SEMP also encourages that this recovery environments model is adapted to meet the needs of communities, such as applying consideration for Aboriginal Culture and Healing.
IGEM recognises Aboriginal Culture and Healing has advanced in recent years and is now recognised as a critical input for emergency management, especially in recovery. Bushfire Recovery Victoria (BRV) includes Aboriginal Culture and Healing as one of its five lines of recovery55, recognising the value of Aboriginal culture, issues of particular or unique significance to Aboriginal people in the sector, and the importance of promoting Aboriginal cultural safety and participation. IGEM also received stakeholder feedback that for state and regional coordination, Aboriginal Culture and Healing is already recognised as a fifth recovery environment in practice.
While these positive examples reflect the increasing acknowledgement of Aboriginal people and culture in contemporary emergency management planning, IGEM observes that Aboriginal Culture and Healing is mentioned once in the SEMP (2021, page 31). This does not accord with this increased profile over time and may affect its promotion at other planning tiers, especially given that municipal plans closely model their recovery sections on the SEMP key recovery environments.
Aboriginal Culture and Healing is not well-represented in MEMPs. Although some do have consideration for this line of recovery, it was more common for MEMPs to be adapted to include other lines such as a fifth Agricultural recovery environment in rural or semi-rural municipal districts. There is an opportunity in future SEMP reviews to consider whether expanding this line of recovery would allow it to be better promoted at other planning tiers.
At state and regional levels recovery coordination is the responsibility of Emergency Recovery Victoria (ERV), with councils holding responsibility at the municipal level.
55 At the time of this analysis the Bushfire Recovery Victoria Recovery Framework was transitioning to the Emergency Recovery Victoria Recovery Framework, reflecting ERV’s establishment in 2022.
REMPs detail recovery arrangements to a high degree, although not all define recovery. IGEM understands that roles and responsibilities of the various relief and recovery agencies may be elaborated on within sub-plans that are intended to be read in conjunction with the REMPs. In alignment with the SEMP, REMPs contextualise recovery through the National Principles for Disaster Recovery and promote the four key recovery environments as a structure to support communities. Some REMPs highlight the value of an additional pillar – Aboriginal Culture and Healing, which is supported in-principle by the SEMP and in-practice by the BRV/ERV Recovery Framework.
REMPs agree that councils are responsible for municipal recovery coordination. However, there is a lack of consensus at state and regional tiers, with varying perspectives on regional and state recovery coordination responsibilities. Most identify the Department of Families, Fairness and Housing (DFFH) / former Department of Health and Human Services (DHHS) as the regional recovery coordination authority, and EMV for state level.
IGEM observes these details would have been correct when REMPs were published in 2020, and anticipates that once they are updated by November 2023, they will likely again reflect contemporary arrangements with ERV responsible for state and regional coordination. IGEM received feedback from agencies that changes to recovery coordination in recent years had resulted in some potential confusion, especially around the role of ERV at the regional tier.
IGEM positively observes that the Eastern Metro REMP contains an attachment that includes agencies delivering a variety of relief and recovery services (food and water, emergency shelter, financial assistance). Equivalents to this were also found in other REMPs and many plans at the municipal level. For Gippsland region, consistency is encouraged through a set of Response and Recovery Standard Operating Procedures that applies to all six of its municipal districts.
Finding 14 — State/Regional
IGEM finds that the SEMP definition of recovery as well as the four key recovery environments are well represented at other tiers, and that the Roles and Responsibilities section for the SEMP clearly outlines responsibility for recovery coordination at state, regional and municipal levels.
IGEM notes that while REMPs characterise recovery arrangements well (although some do not supply a standalone definition of recovery), the responsibilities for regional and state recovery coordination do not align with the SEMP due to recent changes to departments and their roles. There is an opportunity to ensure recovery coordination arrangements at regional and state tiers are consistently and accurately reflected in REMPs as they are updated, and changes to agency roles and responsibilities are well-communicated to ensure that these find their way into planning and practice.
Finding 15 — State/Regional
Although there are sector frameworks that envision Aboriginal Culture and Healing as a key line of effort for recovery, and IGEM received feedback from state-level stakeholders that it is considered a fifth recovery environment in practice, there is opportunity to further promote this concept in the SEMP or other relevant guidance materials to ensure that it is reflected in plans at other planning tiers.
Municipal tier
Mitigation provisions, roles and responsibilities
All MEMPs have some consideration of mitigation, with most defining it broadly as actions taken to reduce the likelihood and minimise the consequences of emergencies. However, there is a trend for plans that are not yet updated under the reforms to use mitigation related terminology interchangeably.
For example, in the Eastern Metro region, updated MEMPs couched mitigation along the lines of effective risk management, while those not updated tend to describe mitigation in terms of prevention and preparedness. IGEM notes that whichever terms were preferred, the content remained relevant and accurate. It is anticipated that terminology around mitigation will naturally become more consistent as MEMPs are progressively updated towards the end of 2023.
Whether updated or not, plans detail examples of mitigation activities that align closely with the SEMP and REMPs, such as land use policies, building code regulations and urban planning. Some MEMPs, such as Glenelg Shire’s, identify the role of resilience-building as a driver for mitigation, since more resilient communities respond to and recover from emergencies more effectively.
This consideration of how community resilience and mitigation interface is an area that municipal planning committees are encouraged to further explore. Overall, while definitions of mitigation vary and were in some cases absent from plans, the actual content around mitigation is clear, consistent and provides relevant examples of municipal activities that support mitigation.
MEMPs universally acknowledge the role of councils in mitigation. Many detail that, as mitigation relies on the application of community knowledge, local government is best placed to enhance mitigation measures. Many MEMPCs note in their plans that the CERA process supplies them with knowledge to implement risk management strategies for safer, more resilient communities.
MEMPCs fulfil their key role in reducing risks and minimising the impact and consequences of emergencies through risk mitigation strategies and sub-plans. MEMPs reflect that while their planning committees hold certain responsibilities for mitigation, ideally a diverse range of actors should contribute to mitigation efforts for greater effectiveness.
Finding 16 — Municipal
IGEM finds that at the municipal tier, updated plans define mitigation around actions taken to eliminate or reduce the incidence and severity of emergencies and minimise their effects, while plans yet to be updated under the reforms generally describe mitigation as a function of prevention and preparedness. In all cases, MEMPCs consistently provide detailed examples of mitigation activities aligned with the SEMP and describe their role in risk mitigation clearly and effectively, making relevant linkages to the CERA process.
Recovery provisions, roles and responsibilities
The concept of recovery in MEMPs is extremely consistent with the definition and considerations for this emergency phase in the SEMP and the Act. MEMPs define recovery as ‘the assisting of persons and communities affected by emergencies to achieve a proper and effective level of functioning' consistent with the SEMP. Many of these plans, such as the City of Ballarat MEMP, use the four recovery environments to structure activities for their municipality, listing services and service providers under them (refer to Figure 3):
Figure 3: Dimensions of recovery planning (Source: City of Ballarat MEMP)
As outlined earlier in this section, currently Aboriginal Culture and Healing is not adapted as a recovery environment in MEMPs, although it is emphasised by some including East Gippsland, Loddon Shire, and the City of Greater Bendigo. The Loddon Shire and City of Greater Bendigo MEMPs both outline the importance of considering any risks to Aboriginal cultural heritage. The East Gippsland MEMP recognises Aboriginal Culture and Healing as a recovery line of effort, however specifies that while it will continue to apply these considerations it will rely on SEMP guidance for inclusion as its fifth recovery environment. Many MEMPs highlight community partnership in recovery. For example, Relief and Recovery SubCommittees include members of local service clubs and the community. Most plans have provisions for Community Recovery Committees (CRCs) comprised of residents, community groups and local businesses which may be activated in emergencies. There is an opportunity to consider whether diversely populated committees such as these could also be a useful model for pre-emergency phases, identifying community concerns and risk awareness/preparedness, similar to how CRCs support recovery.
IGEM positively observes that many plans highlight the reality of recovery as a developmental process aimed towards the re-establishment of elements underpinning community wellbeing (rather than just rebuilding). The Baw Baw Shire MEMP structures service teams against each environment, in a further demonstration of clear alignment to the SEMP’s four recovery environments (refer to Figure 4):
Figure 4: The four recovery environments as a model for organising teams (Source: Baw Baw Shire MEMP).
Many MEMPs describe recovery as being framed by the National Principles for Disaster Recovery, as well as the (Victorian) Resilient Recovery Strategy, and contain considerations for:
the importance of impact assessments — initial, secondary and post-emergency needs
the termination of response, transition to recovery and eventual cessation of formal recovery
the importance of response, relief and recovering occurring in parallel for maximum effectiveness
the four recovery environments, including the Agricultural environment for some municipalities
the value of tapping into existing sources of community resilience, as well as networks such as volunteer services, churches, school committees and social clubs
the five phases of emergency relief and recovery (during, immediately after, short term, medium term, and long term from month four onwards)
the provision for establishing Community Recovery Centres (CRCs), providing a forum for businesses, impacted residents and community groups to shape and input into recovery efforts (for example, the Glenelg Shire MEMP reflects on the usefulness of CRCs in the aftermath of the 2018 South West Fires and promotes this model for use in future large-scale emergencies).
While recovery is an area of strength for almost all MEMPs, there are better practice examples such as:
Colac-Otway, Surf Coast and Corangamite Shires have similar risk environments and formed a Cross-Council Relief and Recovery Committee that produced a joint Otway District Relief and Recovery Plan.
The Mt Hotham MEMP identifies certain demographics including tourists and visitors which may be in need of additional support during recovery and lists known locations of vulnerable persons.
All ARMB MEMPs identify that pressures associated with their business models make recovery challenging in alpine environments which underscores the importance of adequate planning and inter-municipal supports being in place. For example, the Mt Buller/Mt Stirling MEMP highlights that during winter, there may be over 16,000 visitors in the resort at any one time.
The Mansfield Shire MEMP aims to apply a 'community continuity' perspective, separating recovery into three milestones - short term (reach an acceptable level of functioning), medium term (rebuild or reinstate priorities identified by community), and long term (rebuild or reinstate all environments to the same or improved level of functioning).
A minority of MEMPs do not contain details on recovery arrangements. In these cases, it was noted this information could be found in joint relief and recovery plans. Given the importance of recovery as an emergency phase, inclusion of even a short section on recovery would have merit so that readers who cannot (or will not) read separate integrated plans are not left uninformed of arrangements.
In relation to roles and responsibilities, MEMPCs broadly recognise their recovery coordination and planning responsibilities. Across all MEMPs, the role of the Municipal Recovery Manager is covered in detail, outlining duties including (but not limited to) convening meetings with agencies and implementing recovery plans.
However, IGEM heard from stakeholders that there is an opportunity to clarify how state, regional and municipal relief and recovery agencies intersect with coordination by recovery lead agencies (for example, DFFH as coordinator for social recovery). Some MEMPCs have proposed that recovery exercising is one way to clarify recovery roles and responsibilities. Currently there is a gap at all tiers where exercising recovery scenarios is concerned56, and IGEM notes the Australian Institute for Disaster Resilience (AIDR) Recovery Exercising Toolkit may be a useful resource guide to help address this.
MEMPs that are yet to be updated have a similar inconsistency for regional and state recovery coordination responsibility as observed in the REMPs. IGEM notes the SEMP outlines ERV as the responsible entity at state and regional levels. IGEM finds there is an opportunity to ensure that responsibility for recovery coordination at regional and state levels is consistently and accurately reflected across plans, and updated when there are significant changes.
56 Australian Institute for Disaster Resilience (AIDR) Recovery Exercising Toolkit webinar, March 2023
Preparers of plans are encouraged to keep important arrangements such as this as up to date as possible. However, IGEM notes feedback from some MEMPCs that this ad hoc update approach represents an administrative burden.
Therefore, it may be more practical for MEMPs to link to external sources that are likely to be updated in line with sector changes, such as the SEMP’s Roles and Responsibilities section. The Wimmera Emergency Management Resource Sharing Partnership expressed that its Partner Councils had experienced success in linking its MEMPs to external agency websites for hazard specific arrangements such as fire or floods.
Finding 17 — Municipal
IGEM finds that the vast majority of MEMPs contain definitions of recovery consistent with the SEMP, as well as common considerations such as the Resilient Recovery Strategy and the four recovery environments. Most plans detail recovery arrangements in a comprehensive way that captures the complexity of this emergency phase and the need for community partnership. In some MEMPs, definitions and details of recovery are not provided, which presents a clear area of opportunity for future updates of these plans.
Finding 18 — Municipal
IGEM finds that there is an opportunity to clarify how state, regional and local relief and recovery agencies intersect with the coordination by recovery lead agencies. IGEM acknowledges that MEMPCs have proposed that recovery exercising is one way to address this issue.
Finding 19 — Municipal
IGEM finds that there is an opportunity to ensure recovery coordination arrangements at regional and state tiers are consistently and accurately reflected in MEMPs. IGEM anticipates that as all MEMPs are updated to meet the reforms by the end of 2023, descriptions of recovery coordination responsibility at state and regional tiers will become more consistent.
3.2 Community resilience and shared responsibility
State and regional tiers
Community
resilience
There are few mentions of community resilience in the SEMP. These instances — such as the State Emergency Management Priorities, which have a line on supporting community resilience as part of their standard phrasing — do not expand upon or define the concept.
There is an opportunity for this state-level document to refer to the Community Resilience Framework for Emergency Management, which contains seven underpinning characteristics. IGEM notes the inclusion of a section on community resilience is not an existing item in the 2023 SEMP Review Issues Register, however it may be beneficial to incorporate community resilience into the SEMP more fully in the future.
Similar to the SEMP, community resilience does not feature in all REMPs beyond being mentioned as part of plan objectives, nor does it feature in the State Emergency Management Priorities. REMPs make limited reference to community resilience, although they commonly promote a community focus in their emergency management activities and the importance of resilient, connected regions.
Better practice is observed in the Loddon Mallee REMP, which aligns with the Community Resilience Framework, in defining it as ‘the capacity of individuals, communities, institutions, businesses and systems to survive, adapt and thrive no matter what kind of chronic stresses and acute shocks they experience’. The REMPC also outlines its commitment to using and promoting this framework in developing and evaluating resilience initiatives across the region.
Finding 20 — State/Regional
IGEM finds there is an opportunity to strengthen the concept of community resilience in plans at the state and regional tiers by reflecting the Community Resilience Framework for Emergency Management in future updates of plans.
Shared responsibility
The SEMP has a standalone section on shared responsibility, which describes this concept as the obligations held by a range of actors to take certain actions and make certain decisions. The SEMP acknowledges that, for shared responsibility to deliver its full benefits, the concept must be embedded system-wide. It outlines that shared responsibility is underpinned by a clear articulation of roles and responsibilities, sufficient flexibility in arrangements, as well as actors holding the appropriate levels of knowledge, capacity, agency, and accountability.
The SEMP outlines actions that can be taken by the sector, individuals and households, as well as businesses, community groups and networks (refer to Figure 5), which is replicated in some MEMPs.
Figure 5: Shared responsibility for emergency management (Source: State Emergency Management Plan 2022).
Many REMPs refer to shared responsibility, although in most cases it is not explained or expanded upon, with no dedicated section on this concept. For example, many REMPs only express in their objective statement that they aim to ‘support efficiency and effectiveness on a platform of shared responsibility and interoperability’.
Given that REMPs form an important linkage between state and municipal tiers, it may be appropriate to consider a heightened examination of shared responsibility in REMPs and include examples of how it is practically delivered at the regional tier. IGEM heard stakeholder feedback that there may be a need for the regional tier to take a collaborative approach across agencies and with the community to facilitate trusting relationships and a coordinated, holistic approach that promotes shared responsibility.
Finding 21 — State/Regional
IGEM finds that the SEMP reflects the concept of shared responsibility and recommends high level actions for the sector, individuals and households, and other groups. However, REMPs do not have similar standalone sections on shared responsibility, which may represent an area of opportunity for future iterations to bring them closer into alignment with both state and municipal tiers.
IGEM notes that there may be a need for the regional tier to take an active role in supporting collaboration across agencies and with the community to build trusting relationships and therefore a coordinated holistic approach within councils that promotes shared responsibility.
Municipal tier
Community resilience
Many MEMPs describe community resilience to a degree, though slightly fewer offer a standalone definition. The most prevalent definition was 'the capacity of individuals, communities, institutions, businesses and systems to survive, adapt and thrive no matter what kind of chronic stresses and acute shocks they experience' and ‘the ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and recover from the effects of a hazard in a timely and efficient manner’.
In many MEMPs, community resilience is described as an enabler that allows communities to prepare for, respond to and recover from emergencies more effectively, although it is often not explored further as a concept. There is a common theme of capacity-building in ‘peace time‘ to shore up resilience.
IGEM observes that the next step beyond commonly-agreed definitions of community resilience will be ways to assess, measure and implement this — which will necessarily differ across municipal districts, but should be guided by the Community Resilience Framework for Emergency Management.
Some MEMPs already reference this framework, which outlines characteristics (such as being culturally rich and vibrant) that the sector should seek to identify and support in communities. Others, such as the Banyule MEMP, have strategies to build on community resilience, such as developing and implementing council’s strategic plan for disaster resilience and educating the community on emergency topics.
As appropriate for environments characterised by remoteness and weather extremes, alpine resorts promote a vision of community resilience based on capacity, understanding, communication of risk, and connectedness (as indicated by metrics such as high social wellbeing and volunteerism). Another highlight is the Hepburn Shire MEMP, which defines resilient communities as having:
capacity to absorb stress or destructive forces through resistance or adaptation
capacity to manage themselves, or maintain certain basic tasks or structures, during emergencies.
IGEM observes the first point accords with the definition offered by other MEMPs, while the second speaks to a self-sufficiency during emergencies that connects well with the principle of shared responsibility. The Hepburn Shire MEMP defines its view of community resilience as one that spans economic, human and social dimensions, a model also contained in Change and disadvantage in regional Victoria: an overview (2011). Although this plan has not (at the time of IGEM's analysis) been updated to align with the reforms, IGEM observes that it details community resilience and community-led planning to a high level, and encourages this focus to be maintained in the updated version.
The Mornington Peninsula MEMP also describes characteristics of more resilient communities, including that they are mindful of their risks and vulnerabilities, use their abilities, experience and resources to prepare for and manage the consequences of emergencies, and that they work together to support each other and emergency services across all emergency phases.
Across MEMPs, there is a general acknowledgement that MEMPCs have an important role to play in resilience-building through community engagement programs and like initiatives.
The Rural City of Benalla MEMP outlines that community resilience is determined by whether communities have the necessary resources and capability to organise themselves during times of need. It notes the Australian Government Department of Home Affairs’ National Strategy for Disaster Resilience (2011) identifies a lack of detail about how to be ‘self-reliant and prepared’ in practice at local levels, and that this lack of clarity presents challenges for communities. The Nillumbik Shire MEMP details that a challenge facing the sector is balancing community expectations while promoting greater resilience across all phases of emergencies. Many MEMPs contain specific initiatives in support of resilience such as community meetings, public events, and the distribution of educational materials (such as fire season flyers).
Finding 22 — Municipal
IGEM finds that many MEMPs define the concept of community resilience and acknowledge the role MEMPCs have in resilience-building through community engagement programs and like initiatives.
There is an opportunity to strengthen MEMPs by building on the concept of community resilience, referencing the Community Resilience Framework for Emergency Management and other relevant sources in future updates. MEMPCs should also consider linking to examples of successful resiliencebuilding work undertaken in their municipality to promote better practice.
Shared responsibility
Shared responsibility features variably in MEMPs. Many recognise that no single body (particularly councils) can be solely responsible for emergency management, and that individuals also have a responsibility to prepare themselves for emergencies. However, fewer define shared responsibility or how it should work in practice, which may be an important next step to solidify preparedness and action for emergencies at all levels.
In some regions, there is a trend of shared responsibility being more prominent in updated plans. In the Southern Metro region, it reflects in all updated MEMPs, with the non-updated MEMPs for this region still alluding to collaboration between agencies, departments and the community (even if it is not called shared responsibility by name). This is also observed more broadly in other regions; even plans that do not define shared responsibility still underline the need for individuals and communities to prepare for emergencies.
In some MEMPs however, the concept of shared responsibility has not progressed past the notion of diverse responsibilities at a number of levels. In addition, plans that define shared responsibility do not emphasise as strongly the community or individual perspective as the need for agencies to collaborate.
However, numerous MEMPs do adapt the SEMP’s shared responsibility actions (refer to Figure 5) for the municipal level, with examples of shared responsibility in practice. This includes individuals meeting their own relief and recovery needs in the aftermath of an emergency, or households ensuring that they have appropriate insurance cover. Feedback from MEMPCs indicated that shared responsibility is not always realised in practice, particularly in relief and recovery, and that additional and unsustainable expectations are placed on providers such as councils to continually increase their levels of assistance. IGEM notes commentary from MEMPCs that New Zealand's emergency management sector uses a model whereby agencies work together to help build community capacity to support themselves for at least three days of an emergency57
There is an opportunity to strengthen shared responsibility in the MEMPs through further specific examples of actions that can be taken at the municipal level. This relates to the concept of the purpose and audience of plans; if the community is to be considered a key audience, plans should include specific activities for individuals and households.
This is already done by some MEMPs in the Gippsland region, which recommend actions for households before (preparing properties by clearing vegetation), during (acting on emergency information and warnings) and after (meeting own recovery needs) emergencies. However, IGEM understands that taking
57 Home emergency checklist, New Zealand Government (govt.nz)
shared responsibility from the agency collaboration context into broader community practice is not straightforward and will require significant time and investment.
The Colac-Otway Shire MEMP summarises the challenges associated with shared responsibility well, stating that research shows many people still adopt a ‘wait and see’ approach to emergencies. However, as the profile of emergencies driven by climate change is raised in the public consciousness, there may be opportunities for MEMPCs to shift to a more proactive approach with their communities. Although shared responsibility has a place in many plans, there is potential to further embed this at the municipal tier through outreach, engagement and educational initiatives — not only by local council who is wellplaced to interact directly with communities, but all MEMPC members.
Finding 23 — Municipal
IGEM finds there is an opportunity to strengthen MEMPs by building on the concept of shared responsibility as described in the SEMP, linking to specific examples of actions or activities that contribute to shared responsibility as appropriate for each municipal district.
This can contribute to sharing of better practice and educate individuals, households and community groups on how they can best mitigate emergency risks to oneself and others.
3.3 Other definitions and terminology
Plans at all tiers consistently apply and define key terminology such as the phases and classes of emergencies (1, 2 and 3), the six Cs of emergency management, and concepts such as evacuation. Therefore, IGEM focused on less-commonly defined or agreed upon terminology in analysis of this theme.
State and regional tiers
The SEMP defines non-major emergencies as small incidents managed by the public or agencies without call for further resources, and for which significant consequences or the development of a major emergency are not anticipated. This is a concept that was variably defined at other tiers.
IGEM is aware that as part of the 2023 SEMP review, it is suggested that references to non-major emergencies may be removed. This review also contains an item about the ongoing shift from deficitbased (vulnerable) to strengths-based (at risk) language in relation to vulnerable people, in accordance with the Shared Responsibility Framework for those Most at Risk in Emergencies, which is currently in the piloting phase.
REMPs mostly list acronyms and abbreviations, however they do not always fully explain other concepts. This reinforces a perception that the intended audience is sector personnel and may limit community engagement with plans in their current form. For some definitions, REMPs refer readers to the SEMP and highlight that these two documents should be read in conjunction with each other. Although it was mostly raised as a consideration, REMPs make fewer and less descriptive mentions of considerations for vulnerable persons than MEMPs do.
Municipal tier
Some MEMPs define non-major emergencies. The prevailing definition in use by most plans (in line with the SEMP) is a small event that is an emergency that:
does not meet the criteria for a major emergency
significant consequences for the community are not anticipated
can be resolved using local resources.
Some plans define non-major emergencies instead as ‘an event that has occurred on a small scale (residential) where an individual or family have had their home or possessions severely damaged or destroyed’. This particular definition differs from that provided in the SEMP. There are other isolated cases of definitions – such as for relief or mitigation – not reflecting those found in the SEMP. For fundamental emergency management concepts, being consistent with the SEMP is better practice.
Provisions for vulnerable persons are consistently found in MEMPs, with most defining this cohort via the criteria in the Vulnerable People in Emergencies Policy (2018):
frailty or physical/cognitive impairment
inability to understand or act on warnings
lack of personal or community support
a reliance on emergency services.
ARMB MEMPs have detailed considerations for vulnerable persons, with the Falls Creek MEMP acknowledging that ‘at any one time there may be a number of Vulnerable Persons in the resort that may have special needs during an emergency.’ The Mt Hotham MEMP states that vulnerable contexts in alpine resorts include skiers in ‘white out’ conditions and chairlift passengers during stoppages.
This sense of vulnerability as an interaction between person, place and circumstance is seen across many MEMPs. For example, the City of Greater Geelong MEMP reflects on various dimensions including levels of preparedness and vehicle ownership. Many MEMPs highlight that different groups may be vulnerable to different emergency events, and these groups are defined not only by age and disability, but also by socioeconomic situation, mental health, being a tourist or visitor, or living in homes of poor design.
The Pyrenees Shire MEMP emphasises that assumptions about populations traditionally thought of as vulnerable (such as the elderly) must be challenged and tested, in support of more situation-specific views of vulnerability. In alignment with this, the Towong Shire MEMP defines vulnerable people in terms of ‘the characteristic of a person or group in terms of their capacity to anticipate, cope with, resist and recover from the impact of a natural or man-made hazard.’
IGEM observes these descriptions follow a trend of maturation in the understanding of vulnerability away from being a permanent, embedded trait of certain individuals, and towards being a quality that varies between people (and even within the same person) for different emergency events.
The next step for plans at all levels may be to consider whether the use of up-to-date terminology such as ‘at-risk’ can further enhance these considerations, as ‘vulnerable’ remains the preferred term in all current MEMPs. In addition, IGEM notes feedback from MEMPCs that the vulnerable persons registers were created in 2010, and that health agencies and nurses have greater knowledge of people at risk that can be used to review and update these.
However, IGEM notes positively a strong focus on planning for the needs of vulnerable persons, including exploring additional vulnerability factors such as those outlined above and referencing registers for vulnerable people and facilities. This aligns well with work by DFFH to shift towards a strength rather than deficit-based approach for vulnerability in emergencies.
MEMPCs are encouraged to remain conversant with changes in policy or guidance around vulnerable people. The Shared Responsibility Framework for those Most at Risk in Emergencies being trialled by some municipal districts is an emerging example. However, IGEM received stakeholder feedback that the piloting of this framework must be completed, and subsequent refinements (if any) made, before it can be considered contemporary better practice and suitable for inclusion in plans.
Finding 24 — Municipal
IGEM finds that MEMPs consistently define vulnerable persons through the Vulnerable People in Emergencies Policy. There is opportunity for MEMPCs to ensure that as their plans are updated, they reflect terminology and considerations in accordance with the most contemporary and agreed upon state-level policy documents and frameworks to maximise consistency.
4 Continuous improvement
4.1 Feedback loop
State and regional tiers
Currency of plans
The SEMP underwent review in 2021 following the introduction of the inaugural plan in December 2020.
The SEMP is reviewed every three years or as required, with the 2023 SEMP Review underway at the time of this report’s compilation. The current SEMP links to an Emergency Management Planning Resource Library resource that details changes resulting from the 2021 review of the inaugural plan, which includes updated terminology, expanded acronyms and streamlining the document for improved ease of use.
In addition, changes can be made to the SEMP by approval of the State Crisis and Resilience Council, which allows the document to be updated on an ad hoc basis to reflect changing arrangements. This has been used in the past, for example to insert references to Emergency Recovery Victoria when it superseded Bushfire Recovery Victoria in October 2022.
All REMPs were introduced in November 2020. Most note that, to provide for a current and comprehensive approach, they are reviewed every three years or as required. REMPs generally have amendment histories that detail changes to each iteration, however these offer few specifics. The inclusion of more detailed amendment histories would allow REMPs to better illustrate their development over time and clearly demonstrate lessons learning.
REMPs universally identify they are reviewed annually (in full or part), after activation for an emergency event, and where the plan has been exercised and shortfalls identified. Although this commitment to continuous improvement is encouraging, the benefit of these reviews would be easier to appreciate if amendment histories reflected changes made as the outcomes of assurance activities, exercises and emergency events.
Finding 25 — Regional
IGEM finds that REMPs could enhance their contents through more detailed amendment histories that depict lessons learning in practice. Ideally these amendment histories would build on existing better practice around REMPs having an agenda of continuous improvement, linking plan updates to the outcomes of assurance activities, exercises and emergency events.
Validation through exercising
There is no specific mention within the SEMP of it being exercised, however IGEM notes the following:
there is a requirement for the SEMP sub-plans for emergency risks to be individually exercised. IGEM has observed examples of this, such as through the Extreme Heat sub-plan being exercised by Phase 1 of Exercise Kinglake on 8 March 2023 (as part of the Emergency Management Plan Exercising Project led by EMV)
IGEM observed a SEMP Scenario Test on 6 July 2021, which took the form of a three-hour discussion facilitated by EMV exploring the quality and maturity of the SEMP
the SEMP states that the sector supports a culture of continuous improvement through exercising its plans, encouraging lessons sharing and incorporating relevant assurance activities.
Many REMPs highlight in their objectives capability development through shared exercising, as well as the promotion of continuous improvement. However, on the whole REMPs do not detail exercising, which makes achievement of the aforementioned goals less clear to appreciate.
Similar to the SEMP Scenario Test, EMV led and evaluated a project to scenario test REMPs in Barwon South West and North West Metro regions, testing them against foot and mouth disease and earthquake hazard scenarios respectively. These tests identified that REMPs were beginning from a point of referencing the work at state and municipal tiers, with further work required to identify the optimal way for REMPs to add distinct value under the reforms without duplicating the work being done at other tiers. IGEM acknowledges that REMPCs published their first versions of REMPs under the reforms in 2020, and that it will take time to build a track record of exercising and develop exercising capability.
However, for future versions, the inclusion of regional tier exercising and related information — scenarios, outcomes, and lessons — should be considered, for example in the form of a list of historical exercises. This would allow REMPs to demonstrate that aspects of the plan as well as preparedness for certain hazards have been exercised and, where appropriate, plans adjusted.
Finding 26 — Regional
IGEM finds that although REMPs have a stated focus on capability development, they provide limited detail on exercising. REMPCs are encouraged to include information on regional exercises, including scenarios, outcomes and lessons in future versions of their plans.
Incorporation of lessons identified
Plans at all tiers emphasise the value of identifying and learning lessons. The 2021 SEMP includes changes made as a result of internal reviews, agency feedback and collaboration, as well as IGEM's Inquiry into the 2019-20 Victorian Fire Season – Phase 2 report.
REMPs as a whole clearly outline the value of lessons management, some in reference to EMV's EM-LEARN Framework. Most highlight the value of independent assurance activities — such as the work of IGEM — as a source of lessons. This appreciation of lessons from internal and external sources in REMPs is promising, although IGEM observes that specific examples of lessons are rarely provided. Just as reflecting on lessons in MEMPs can educate local actors, there is an opportunity for REMPs to consider cross-cutting lessons which hold relevance for all or most municipal districts in their region.
Some REMPs signal a willingness to pursue better practice in lessons management. The Eastern Metro REMP highlights a commitment to embed lessons from assurance activities in its readiness and operational response processes. This REMP, as well as the plans for North West and Southern Metro, also detail success criteria over a three-year planning horizon. These include assuring MEMPs, reviewing the REMP based on learnings from incidents, and supporting training and exercising. The Loddon Mallee REMPC positions its 2020 REMP as a foundational step on a journey of continuous improvement, indicating that future versions will incorporate lessons with the potential to enhance regional capabilities. This is also in line with the recommended practice within the AIDR Handbook Emergency Planning, which states that emergency plans should incorporate lessons from past events for future use.
Some REMPs do identify broad lessons resulting from past emergency events. The Hume REMP reflects that the COVID-19 pandemic brought into focus challenges experienced by border communities, as well as that that the consequences of emergency events could be greater than the actual event itself.
Finding 27 — State/Regional
IGEM finds that the SEMP incorporates changes made as a result of internal and external reviews, inquiries and feedback as part of its 2021 review. IGEM highlights the value of these sources of learning for the 2023 and future SEMP reviews.
IGEM finds that the REMPs detail an appreciation for lessons management and commitment to better practice, with multiple identifying success criteria over a three-year planning horizon to guide their strategic efforts. This approach could be further enhanced through detailing specific lessons that apply at regional level, in accordance with AIDR Handbook Emergency Planning, which states that emergency plans should incorporate lessons from past events for future use.
Consultation with stakeholders other than government organisations
The Emergency Management Commissioner arranges the preparation of the SEMP in accordance with the Ministerial Guidelines, which highlight that plans must consider stakeholder (including community) interests as well as the knowledge of agencies, expert advice and/or relevant literature.
The SEMP does not detail any consultation with stakeholders outside of government, such as industry or community organisations. However, IGEM is aware of extensive agency consultation to develop the original SEMP. Subsequent reviews include formal stakeholder engagement, with agencies given time to consider all items on the SEMP Issues Register, and all document changes agreed via consensus by the impacted agencies.
At the regional tier, consultation with stakeholders other than government is not frequently detailed, despite a general support for engagement and connectedness in emergency management planning. It is possible that the responsibility of REMPCs to assure municipal plans and advise MEMPCs, as well as create their own plans, narrows the field for wider engagement — which may be more practical to achieve at the municipal tier.
In some cases, such as the Hume REMP, there is an acknowledgement that input from public forums can inform plan development, however it is possible this references community engagement undertaken at the municipal tier. IGEM notes that sections 60AFA and 60AFB of the Act give license for REMPCs and MEMPCs to conduct optional consultation, in that they may consult any sector of the community the planning committee ‘considers appropriate’. It is reasonable that preparers of plans might consider appropriate (within resource constraints) the broadest possible consultation with communities, as well as non-government organisations, industry and critical infrastructure owners/operators. Where practicable, REMPCs are encouraged to consider opportunities for such consultation.
Finding 28 — State/Regional
IGEM finds that the SEMP and REMPs contain limited detail on consultation with stakeholders outside of government, such as industry and community organisations.
Municipal tier
Currency of plans
At the time of IGEM’s analysis, most MEMPs had been updated between 2017 and 2022, with a higher proportion yet to be updated to reflect the EMLA Act reforms. IGEM observes that municipal plans need to be updated by end–2023, and notes opportunities for comparisons to be made, and better practice adopted between both categories of plans — EMLA Act reform updated, and yet to be updated.
MEMPCs articulate well how review cycles shape the development of their plans, specifying they are updated annually to every three years as required by section 60AN of the Act. MEMPs in some regions (such as Barwon South West) have provisions for out of session meetings to review their adequacy after an emergency event. Measures such as this have the potential to identify practical insights in the immediate aftermath of an emergency.
However, whether these mechanisms ultimately drive improvement is unclear, as MEMP amendment histories are often of minimal detail and infrequently link updates to the outcomes of exercises, reviews or other sources of learning.
There are examples of better practice also. For example, the Cardinia Shire MEMP details that a key change in its latest update reflects amendments to ensure ongoing consistency with state and regional arrangements. Overall, more detail in amendment histories would allow plans to better trace their development over time, exploring linkages to exercise outcomes, assurance activities and other important sources of learning.
Finding 29 — Municipal
IGEM finds that MEMPCs are able to clearly describe how the review cycle under the arrangements shapes the development of their MEMPs, as well as in some cases use situational triggers to review their quality — such as shortfalls identified following an exercise or emergency event. More detail in amendment histories would allow plans to better trace their development over time, linking to sources of learning such as exercises.
Validation through exercising
MEMPs are emphatic about the value of exercising, however, whether they provide specific detail of exercising varies. IGEM observes it is common for MEMPs to describe the importance of exercising, while not including lists of historical exercises or related information. This suggests the full breadth of municipal tier exercising may not be currently captured in them. IGEM encourages MEMPCs to include key details about exercising in their future plans, such as lessons learnt and what identified risks and themes were covered in historical exercises. Similarly, IGEM encourages including what identified risks and themes are to be covered by planned exercising in future plans.
It is probable that exercising has been limited by numerous emergency events since 2020, not least of which being the COVID-19 pandemic. IGEM positively notes that plans such as the Moyne Shire MEMP, specify when they had been exercised or activated, as many others were unclear on this point.
There are welcome examples of maintaining capacity for exercising. The Mitchell Shire MEMP notes that although it was ‘partially activated’ for COVID-19, this did not replace exercising in its entirety, and that it has developed a COVID-19 Community Recovery Plan from these experiences. The Rural City of Wangaratta’s experience with COVID-19 also led to the preparation of a new Pandemic Plan, in a better practice example of using lived emergency experience to drive planning efforts. Hume region plans are generally able to describe how emergencies, such as the 2019–20 bushfires or COVID-19 pandemic, were considered to have tested the MEMPs through lived experience.
In regions such as North West Metro, most MEMPCs include lists of exercises in their plans. The majority of exercises therein are multi-agency, covering diverse formats and scenarios including evacuations, natural hazards, transport incidents and exercising emergency structures such as Incident Control Centres or crisis management teams.
Southern Metro region also represents better practice in exercising, with all ten MEMPs containing a historical list of exercises. The City of Casey, City of Greater Dandenong and City of Frankston in particular include a column that details which sections of their MEMPs were tested or used in the exercise. In the City of Casey MEMP, exercises include stakeholders other than government, such as industry, nonprofit, charitable and community groups.
Despite a lack of specificity about exercising in many plans, MEMPCs are generally able to identify options for exercising, such as establishing a set interval in the year to test MEMPs (the City of Greater Geelong committed to do this in its November meetings) and conducting tabletop/desktop exercises.
There is comparatively less detail on deployment style exercises that require greater mobilisation of resources and personnel, as well as inter-agency collaboration. AIDR Managing Exercises Handbook 3 states that when deciding on an exercise style, exercise designers should consider existing levels of capability.
IGEM encourages planning committees to (where appropriate and within resource constraints) explore progressively more complex exercises that can build on existing municipal capability, working from discussion to deployment style exercises over time (refer to Figure 6):
The exercise styles outlined in MEMPs tend to be forums or discussion exercises. IGEM acknowledges the funding and resourcing challenges associated with designing, planning, conducting and evaluating exercises. As part of the emergency management planning reforms, responsibility for municipal tier planning was transferred from councils to multi-agency MEMPCs.
However, as part of consultation for this report, IGEM heard that a number of MEMPC Chairs felt councils still disproportionately carry the burden of developing and improving MEMPs under the arrangements, in particular for exercising. Therefore, IGEM encourages that MEMPCs consider moving towards deployment-style exercises where possible, in reference to council emergency management capabilities and with greater involvement and commitment from all MEMPC members.
IGEM observes that many MEMPCs already have exercising subcommittees, which highlights that enabling structures for exercising are already in place. IGEM encourages these subcommittees and MEMPCs to reference exercising that occurs elsewhere in the sector for learnings and guidance.
The Banyule Community Exercise is one example relevant to the municipal tier. This exercise was the first under EMV’s Emergency Management Plan Exercising Project 2022–2024, which will deliver four, community-informed scenarios for high impact, plausible events. The exercise explored the impacts of a thunderstorm event, as well as communicating with and issuing warnings to an audience of community seniors. The exercise was held in state, incident, municipal and community feedback phases, with the resulting observations and insights to be available with release of the Banyule Community Exercise Report.
Although there are continuous improvement opportunities for municipal exercising, both including details of exercising in MEMPs and progressing towards deployment style exercises of greater complexity with commensurately greater benefits, there are also numerous examples of existing better practice.
The Baw Baw Shire MEMP contains a schedule of exercises for 2018–19, over which time the scenarios exercised included bushfires, evacuations, severe weather and other emergency events. In Hume region, many MEMPs offer a comparatively detailed account of exercising, including the simulated COVID-19 outbreak in ski-resorts (exercise 'Positively Freezing') conducted in Mansfield Shire in 2021.
For all plans, further detail on exercises – including outcomes, relevant lessons and resultant changes to plans – would strengthen the link between exercising and plan development. In addition, although some MEMPs detail their exercising, fewer identify specific lessons that arise from the conduct of exercises.
The Corangamite Shire MEMP identifies that 'Exercise Luke' held in 2019 explored consequences from a tourist bus and car collision on the Great Ocean Road, allowing participants to consider, discuss and improve multi-agency response processes. More consideration such as this, about how exercises advance plans and processes, would be beneficial for closing the loop on exercising.
IGEM noted feedback from MEMPCs regarding the benefits of demonstrating clear consideration and incorporation of exercise lessons in their plans, particularly as a reference for new MEMPC members. These MEMPCs also raised that exercising can be a strong tool for building inter-agency relationships.
Finally, IGEM observes that there is an opportunity to improve exercising through aligning scenarios to key risks identified through the CERA process. In some municipalities, pandemic and essential services disruptions appear in the risk assessment section of MEMPs, but have limited representation in exercises.
Finding 30 — Municipal
IGEM finds that the inclusion of historical exercises and specific exercise information — such as scenarios, participating organisations and learnings — was varied in MEMPs. This is despite MEMPs universally reflecting on the value of exercising and its potential benefits for plan development.
IGEM encourages MEMPCs to consider whether greater inclusion of exercising details, including scenarios and associated learnings, can enhance their plans and demonstrate the principle of continuous improvement to a higher degree. For those MEMPCs that exercise regularly, IGEM encourages consideration of whether progressing exercises over time from predominantly discussion to deployment style exercises will add even greater value, whilst reaping the benefits of shared responsibility such as improved capability and building relationships between member agencies.
Incorporation of lessons identified
The incorporation of specific lessons in municipal plans varies. MEMPs reflect two features of REMPs:
a commitment to promoting effective lessons management
minimal identification of specific lessons in plans, despite articulating the value of lessons learning. This presents a good practice bedrock from which plans can better identify and incorporate lessons. As with regional plans, MEMPs could benefit from a deeper interrogation of lessons, highlighting specific examples and what these ultimately contributed to plan development. In this way, the transition from lessons identified to lessons learned – as per the OILL methodology in the AIDR Handbook Lessons Management – can be made clearer to readers.
Despite little specificity around lessons, there are examples of better practice. The City of Warrnambool and Alpine Shire MEMPs outline the impact of the 2009 Victorian Bushfires Royal Commission (VBRC) in the development of Community Information Guides for at-risk townships, providing a tool to support communities and educate them on bushfire risks. Similarly, the Glenelg Shire MEMP considered the VBRC Interim Report in the development of its municipal Bushfire At-Risk Register. IGEM acknowledges that these examples date back to 2009, however the principle of reflecting on lessons resulting from independent assurance activities holds true. In other better practice, the Mornington Peninsula MEMP not only contains a list of past exercises, but includes their themes, outcomes and key learnings.
MEMPs in all regions outline they are tested or exercised annually, with exercises being an important source of learnings. A consistent feature of MEMPs is a willingness to address shortcomings identified by exercises and/or emergency events, as well as an acknowledgement that debriefs after emergencies are an important source of insights to form the basis for lessons. IGEM considers there is an opportunity for MEMPs to include more specific information about both exercises and lessons.
In some regions REMPs heavily promote the EM-LEARN Framework and its Lessons Management Life Cycle58. As MEMPs are updated throughout 2023, IGEM considers there is an opportunity to reflect these concepts at the municipal tier as well.
Finding 31 — Municipal
IGEM finds that although plans at the municipal tier are emphatic about the value of lessons learning, most do not articulate specific lessons that have been learned and incorporated in their plans. To maximise transparency and assure the community that improvements are being embedded, there is an opportunity to include the lessons from debriefs and exercises that result in updates to the MEMPs. This information would also serve as a historical record of continuous improvement.
Consultation with stakeholders other than government
As befits their level of closeness to the community, MEMPs outline numerous and diverse examples of consultation with stakeholders other than government. Some examples include:
making risk assessment outputs and/or plans available on council websites for feedback
community engagement policies, or the intent to develop them
working groups or equivalent structures comprised of community members to aid in plan development, such as in Corangamite Shire and Yarra Ranges MEMPs
committing to engage with the community to assist in planning for and preventing emergencies
guest attendance at MEMPCs for critical infrastructure owners/operators and community groups.
IGEM positively reflects that each of these strategies assists MEMPs to apply a community lens and weigh the interests of residents, businesses and non-government organisations. However, these examples were not universal, even within regions, and there were some municipal districts that have few to no consultation examples with non-government stakeholders. While appropriate for MEMPCs to select community engagement mechanisms that are most relevant and useful for their local context, consultative practices could be further enhanced by considering and implementing the aforementioned examples more widely.
Finding 32 — Municipal
IGEM finds that MEMPCs have diverse strategies for engaging stakeholders outside of government, such as feedback mechanisms and community engagement policies, working groups and programs. While there is much better practice in this area across the body of MEMPs, there are some that do not provide examples of consultation with stakeholders other than government.
58 Lessons management framework (EM-LEARN) | Emergency Management Victoria (emv.vic.gov.au).
Appendices
Appendix A: Methodology
This assurance project aimed to analyse the key outputs from the emergency management arrangements – the SEMP, REMPs and MEMPs– to identify better practice and continuous improvement opportunities. It was not an assessment of compliance against the Act or the Ministerial Guidelines.
As with all IGEM assurance activities, this project was conducted in accordance with the principles of the Assurance Framework for Emergency Management, with a focus on systems and processes, rather than individuals.
Given the contents of emergency management plans are wide-ranging, IGEM undertook a preliminary analysis of previous assurance reports, including its observations of emergency management committee meetings, to identify key themes for analysis.
These themes were then validated against the Act, the Ministerial Guidelines, Statements of Assurance templates, and the Australian Institute for Disaster Resilience Emergency Planning Handbook
Figure 7: Process for identification and validation of assurance project themes.
IGEM analysed the SEMP, and all REMPs and MEMPs against the themes to identify better practice as well as opportunities to foster the improvement of future plans shared in this report. Sub-plans and complementary plans were out of scope for this project.
In undertaking this project, IGEM was acutely aware of the limitation that many plans were not yet updated to reflect EMLA Act reforms, and therefore the better practice and opportunities for continuous improvement are the outputs of its point-in-time analysis of publicly available plans in October 2022.
Nonetheless, in analysing the plans (both updated and non-updated), IGEM was able to identify significant better practice. While IGEM was limited to what was actually reflected in the plans as examples, some of which may have occurred several years ago, their first principles still stand.
Given these limitations, IGEM encourages preparers of plans to consider the inclusion of the identified better practice and continuous improvement opportunities in their plans from a relevance perspective when preparing future updates.
In addition, while the analysis has reflected on specific better practice from plans, IGEM encourages preparers of plans to focus on the first principles of emergency management at each tier due to the tendency of specific arrangements (where outlined) to become outdated over time. Inclusion of outdated arrangements could be misleading to an audience, especially when the arrangements are primarily relevant to the preceding review period, and less suitable for an audience reading the plan prior to its next full-scale review.
Appendix B: List of emergency management plans
Barwon South West
Colac-Otway Dec-20
Corangamite Jan-22
Glenelg Jun-20
Greater Geelong Dec-18
Moyne Mar-20
Queenscliffe Jan-19
Southern Grampians Jun-18
Surf Coast Oct-19
Warrnambool Nov-19
Eastern Metro
Boroondara May-20
Knox May-22
Manningham Jun-22
Maroondah Aug-20
Monash Aug-20
Whitehorse Feb-20
Yarra Ranges Nov-21
Gippsland
Bass Coast Aug-20
Baw Baw May-20
East Gippsland Nov-21
Latrobe May-22
South Gippsland Aug-21
Wellington Sep-20
Grampians
Ararat Jun-17
Ballarat Aug-19
Golden Plains Sep-21
Hepburn Aug-18
Hindmarsh Nov-19
Horsham Sep-22
Moorabool May-20
Northern Grampians Jun-20
Pyrenees Apr-20
West Wimmera Jul-17
Yarriambiack Oct-22
Hume
Alpine Aug-21
Benalla Oct-19
Greater Shepparton Mar-19
Indigo Jul-20
Mansfield Oct-21
Mitchell Aug-21
Moira Mar-19
Murrindindi Sep-20
Strathbogie 2018
Towong Oct-21
Wangaratta Dec-21
Wodonga Aug-21
Falls Creek Resort Management Board May-21
Mount Buller and Mount Stirling Alpine Management Board Jul-20
Mount Hotham Resort Management Board Sep-18
Southern Alpine Resort Management Board Dec-19
Loddon Mallee
Buloke Oct-17
Campaspe Nov-18
Central Goldfields Oct-17
Gannawarra May-20
Greater Bendigo Aug-19
Loddon Mar-17
Macedon Ranges Oct-20
Mildura Dec-21
Mount Alexander Jun-20
Swan Hill Jul-20
North West Metro
Banyule Jun-20
Brimbank Sep-20
Darebin Oct-19
Hobsons Bay Oct-20
Hume May-20
Maribyrnong Oct-19
Melbourne May-21
Melton Jul-20
Moonee Valley Aug-20
Merri-bek Jul-21
Nillumbik Apr-20
Whittlesea Sep-21
Wyndham Sep-21
Yarra Aug-22
Bayside Sep-20
Cardinia Oct-18
Casey Aug-20
Frankston Mar-22
Glen Eira Dec-20
Greater Dandenong May-21 Kingston May-21
Mornington Peninsula Dec-21
Port Phillip May-19
Stonnington Aug-20
Appendix C: Better practice
The following table detailing better practice is not intended to be exhaustive. It seeks to foster continuous improvement by sharing opportunities identified by IGEM in the plans against the project themes and across planning tiers. These supplement the findings outlined in this report and IGEM hopes the examples will provide ideas for further improvement, collaboration and engagement between preparers of emergency management plans as part of future updates.
State Usability
State Mitigation provisions, roles and responsibilities
State Shared responsibility
The
The SEMP lists individuals and households, business and community as having roles — in the spirit of shared responsibility — for mitigation at the municipal level. For example, Page 60 of the October 2021 SEMP outlines that individuals and households should find out about potential risks in their environment and take protective measures, such as having appropriate insurance in place.
The SEMP has a standalone section on shared responsibility, which describes this concept as the obligations held by a range of actors to take certain actions and make certain decisions. The SEMP acknowledges that, for shared responsibility to deliver its full benefits, the concept must be embedded system-wide.
The SEMP outlines that shared responsibility is underpinned by a clear articulation of roles and responsibilities, sufficient flexibility in arrangements, as well as actors holding the appropriate levels of knowledge, capacity, agency, and accountability. The SEMP outlines in table form the actions that can be taken by the sector, individuals and households, as well as business and community groups.
Regional Purpose
Regional Alignment of plans
Regional Alignment of plans
Some REMPs have success criteria in line with the principle of continuous improvement, however IGEM understands these are yet to be measured and reported against. Once this occurs, it will introduce increased accountability for the plans and better define their purpose and future strategic direction.
Many REMPs highlight the value of interoperability within the arrangements. One example is the pursuit of strong connections between Hume and Gippsland regions to ensure Alpine Resort Management Board plans are prepared effectively (alpine resorts sit in in Hume for planning purposes, however Mt Baw Baw Alpine Resort is located in Gippsland).
The North West Metro Region Emergency Management Collaboration Group consists of 14 municipalities within that region, as well as emergency services representatives. Benefits of this arrangement include standardised regional documentation and improved planning for cross border events.
A similar structure exists in Southern Metro region, where its Municipal Emergency Management Enhancement Group aims to enhance the preparedness of councils to respond to an emergency through providing shared training opportunities.
Regional Alignment of plans
Regional Connection with other sector arrangements
Regional Mitigation provisions, roles and responsibilities
Loddon Mallee and Eastern Metro REMPs identify community emergency management plans as part of their planning hierarchy.
The Eastern Metro REMP contains an attachment identifying state-based critical infrastructure within the region. Similarly, the Hume REMP contains a critical infrastructure regional profile listing its infrastructure of significance across the eight critical infrastructure sectors.
There is an acknowledgement in some REMPs that, outside of formally defined responsibilities, optimal mitigation arises from a broad collaboration between government, industry and the community.
This is outlined by the Hume REMP in particular, which frames mitigation as a collective responsibility between:
risk owners to manage their own risks
MEMPCs to undertake mitigation on a municipal scale
REMPCs for building a regional picture of risk and facilitating collaboration.
TIER THEME BETTER PRACTICE IDENTIFIED
page within the State Emergency Management Plan (SEMP) on ‘How to navigate the State Emergency Management Plan’ provides effective guidance on how to navigate to different sections of the plan.
TIER THEME
Regional Community resilience
BETTER PRACTICE IDENTIFIED
Better practice was observed in the Loddon Mallee REMP, which defines community resilience in alignment with the Community Resilience Framework for Emergency Management, as ‘the capacity of individuals, communities, institutions, businesses and systems to survive, adapt and thrive no matter what kind of chronic stresses and acute shocks they experience.’ The REMPC also outlines its commitment to using and promoting this framework in developing and evaluating resilience initiatives across the region.
Regional Incorporation of lessons learned
Regional and municipal Recovery provisions, roles and responsibilities
Municipal Audience
Municipal Audience
Municipal Audience
Municipal Risk assessment and methodology
Municipal Alignment of plans
Municipal Alignment of plans
The Eastern Metro REMP highlights its commitment to embedding lessons from assurance activities in its readiness and operational response processes. This REMP, as well as the plans for North West and Southern Metro, also identify success criteria over a three-year planning horizon. These include providing assurance for MEMPs, reviewing the REMP based on learnings from incidents, and supporting training and exercising.
The Loddon Mallee REMPC positions its 2020 REMP as a foundational step on a journey of continuous improvement, indicating future versions would include lessons with the potential to enhance regional capabilities.
The Eastern Metro REMP contains an attachment that includes agencies within the region delivering a variety of relief and recovery services (food and water, emergency shelter, financial assistance), with equivalents to this found in other REMPs and many plans at the municipal level.
The Mitchell Shire MEMP highlights it has removed much operational detail from its plan, placing this in sub-plans and other documents to enhance accessibility.
There are challenges designing plans to meet the needs of multiple audiences. A possible strategy for including the level of detail a MEMP requires without compromising accessibility, is to place technical information in the appendices. This was achieved in the Northern Grampians Shire MEMP to great effect.
The Hume MEMP includes a consolidated table of contents with details of the rationale, considerations and background for sections of the plan.
For example, in the Prevention and Preparedness section, the Hume MEMP explains that it ‘details arrangements for prevention and preparedness activities, building community resilience, community engagement and responsibilities. These explanations assist the reader to better understand the purpose and contents of each section and find the information of greatest relevance to their needs.
In Southern Grampians Shire, the 2017 CERA process identified multiple communities at higher risk from bushfire, which resulted in Community Information Guides being developed for these townships. The Grampians region MEMPs also reflect well on the impacts of compounding emergencies, where interrelated hazards cause simultaneous emergencies, such as heat conditions leading to fire and power loss.
MEMPs effectively describe how they fit with arrangements at local, regional and state levels, including detailed considerations for emergency event escalation once municipal resources are exhausted. Many, such as the Corangamite Shire MEMP, use graphics effectively to depict the planning hierarchy — inclusive of the community planning tier.
MEMPs clearly identify the benefits of joint planning and resource sharing. In multiple regions, planning clusters share the burden of planning between municipal districts. Examples include in Loddon Mallee region, where the five councils of the Northern Victorian Emergency Management Cluster developed an integrated MEMP. The Mansfield Shire MEMP highlights that the Mt Buller/Mt Stirling Alpine Resort Management Boards benefited from collaborating on a joint MEMP.
All Alpine Resort Management Board (ARMB) MEMPs emphasise the use of resource sharing protocols and Memorandums of Understanding to address resource constraints and a limited emergency management capacity. These MEMPs are particularly coordinated with the activities and risk profiles of nearby municipal districts; for example, the Mt Hotham ARMB holds copies of the MEMPs for Alpine and East Gippsland Shires, noting that it also takes every opportunity to include bordering municipalities in exercises where possible. In a similar vein, the Southern Alpine ARMB attends MEMPC meetings for surrounding councils to ensure that mutual support arrangements are in place.
TIER
Municipal Alignment of plans
Some MEMPCs support community emergency planning as reflected in their MEMPs. Highlights include:
the Rural City of Benalla MEMP includes plans by industry entities such as Thales as CEMPs
the Mitchell Shire MEMP identifies that, while its municipality already has a CEMP for the remote township of Clonbinane, it intends to support the development of additional CEMPs for high-risk communities through its Community Engagement Working Group
the Mornington Peninsula MEMP specifically comments on the ability for communities to undertake their own localised planning and connect their plans into wider emergency management planning efforts – to assist with this, there is a permanent community representative on its MEMPC.
Municipal Alignment of plans
Municipal Connection with other sector arrangements
Omeo region [of East Gippsland] has a Community Disaster Resilience Plan that encompasses multiple townships, which has a stated goal to ‘represent the gap between community capability and agency expectations,’ noting that while communities possess local knowledge, there remain areas where vulnerabilities exist (such as communications outages) that can be addressed with council and agencies.
The Hume MEMP has a specific section on the critical infrastructure in its municipal district. In addition, the Alpine and Mansfield Shire MEMPs are some of the few across regions to have a detailed overview for CIR arrangements, outlining the regulatory environment (such as Part 7A of the Act - Critical Infrastructure Resilience) and listing critical infrastructure in their municipal districts.
Further better practice is observed in the Indigo Shire MEMP, which notes the link between availability of essential services and a community’s ability to recover from an emergency. This MEMP also outlines that the Water, Transport and Communications sectors are dependent on Energy to deliver their services, which reflects contemporary thinking in CIR around the risks associated with Energy (electricity, gas and liquid fuels sub sectors) as an upstream dependency for other critical infrastructure.
Municipal Mitigation provisions, roles and responsibilities
Municipal Recovery provisions, roles and responsibilities
Municipal Recovery provisions, roles and responsibilities
Some MEMPs, such as Glenelg Shire’s, identify the role of resilience-building as a driver for mitigation, since more resilient communities respond to and recover from emergencies more effectively.
Many MEMPs highlight community partnership in the recovery space. For example, Relief and Recovery Sub-Committees include members of local service clubs and the community, and most plans have provisions for Community Recovery Committees (CRCs) made up of residents, community groups and local businesses to be activated in emergencies.
While recovery is an area of strength for almost all MEMPs, there are examples of particular better practice. For example:
the Colac-Otway, Surf Coast and Corangamite Shires formed a Cross-Council Relief and Recovery Committee that produced a joint Otway District Relief and Recovery Plan
the Mt Hotham MEMP identifies certain demographics (such as the tourist community) that may be in need of additional support during recovery, listing known locations of vulnerable persons such as the resort’s Snow Sports School
all ARMB MEMPs identify that pressures associated with their business models make recovery a challenging emergency phase in alpine environments (the Mt Buller/Mt Stirling MEMP highlighted that during winter, there may be 16,000+ visitors in the resort at any one time), which underscores the importance of adequate planning and inter-municipal supports being in place
the Mansfield Shire MEMP states that it aims to apply a 'community continuity' perspective, separating recovery into short term (goal: reach an acceptable level of functioning), medium term (goal: rebuild or reinstate priorities identified by community), and long term (goal: rebuild or reinstate all environments to the same or improved level of functioning) milestones.
TIER THEME
Municipal Community resilience
BETTER PRACTICE
IDENTIFIED
The Hepburn Shire MEMP defines its view of community resilience as spanning economic, human and social dimensions, a model also contained in the Change and disadvantage in regional Victoria: an overview (2011) report. Although this plan has not yet been updated to align with the reforms, it details community resilience and community-led planning to a high level.
The Mornington Peninsula MEMP also describes characteristics of more resilient communities, including that they are mindful of their risks and vulnerabilities, use their abilities, experience and resources to prepare for and manage the consequences of emergencies, and that they work together to support each other and emergency services.
Municipal Community resilience
The Rural City of Benalla MEMP outlines that community resilience is determined by whether communities have the necessary resources and capability to organise themselves during times of need, noting a point from the Department of Home Affairs’ National Strategy for Disaster Resilience (2011) which outlines that there is a lack of detail about how to be ‘self-reliant and prepared’ in practice at local levels, and that this lack of clarity presents challenges for communities.
The Nillumbik Shire MEMP outlines that a challenge facing the sector is balancing community expectations whilst promoting greater resilience across all phases of emergencies.
Many MEMPs contain specific initiatives in support of resilience, such as community meetings, public events, and the distribution of educational materials (such as fire season flyers).
Municipal Shared responsibility
Municipal Other definitions – vulnerable persons
The Colac-Otway Shire MEMP summarises the challenges associated with shared responsibility well, stating that research shows many people still adopt a ‘wait and see’ approach to emergencies. However, especially as the profile of natural emergencies driven by climate change impacts is raised in the public consciousness, there are opportunities for MEMPCs to shift this approach to a more proactive one with communities.
ARMB MEMPs have detailed considerations for vulnerable persons, with the Falls Creek MEMP acknowledging that ‘at any one time there may be a number of Vulnerable Persons in the resort that may have special needs during an emergency.’ The Mt Hotham MEMP states vulnerable contexts in alpine resorts include skiers in ‘white out’ conditions and chairlift passengers due to stoppages. This sense of vulnerability being an interaction between person, place and circumstance is seen across many MEMPs. For example, the City of Greater Geelong MEMP reflects on various dimensions of vulnerability that included preparedness and vehicle ownership.
Municipal Other definitions – vulnerable persons
Municipal Exercising
Municipal Exercising
Municipal Exercising
The Pyrenees Shire MEMP emphasises assumptions about populations traditionally thought of as vulnerable (such as the elderly) need to be challenged and tested, in favour of a situation-specific view of vulnerability.
In regions such as North West Metro, most MEMPCs include lists of exercises in their plans. The majority of exercises therein are multiagency, covering diverse formats and scenarios including evacuations, natural hazards, transport incidents and exercising emergency structures such as Incident Control Centres.
Southern Metro demonstrates better practice in including exercising information — all ten MEMPs in this region contain a historical list of exercises. The City of Casey, City of Greater Dandenong and City of Frankston MEMPs include a column that details which sections of their MEMPs have been tested or used in the exercise. In the City of Casey MEMP, exercises include stakeholders other than government, such as industry, non-profit, and community groups.
The Banyule Community Exercise is one example relevant to the municipal tier. This exercise was the first under EMV’s Emergency Management Plan Exercising Project 2022-2024, which will deliver four community-informed scenarios for high impact, plausible events. The Banyule Community Exercise explored thunderstorm event impacts, as well as issues around communicating with and issuing warnings to an audience of community seniors. The exercise was held in state, incident, municipal and community feedback phases, with observations and insights to be available in the Banyule Community Exercise Report.
Municipal Exercising The Corangamite Shire MEMP identifies that Exercise Luke held in 2019 explored consequences from a tourist bus and car collision on the Great Ocean Road, allowing participants to consider, discuss and improve multi-agency response processes. More considerations such as these about how exercises advance plans and processes would be beneficial for ‘closing the loop’ on exercising, demonstrating a clear consideration and incorporation of lessons.
Municipal Incorporation of lessons learned
Municipal Consultation with stakeholders other than government
The City of Warrnambool and Alpine Shire MEMPs outline the impact of the 2009 Victorian Bushfires Royal Commission (VBRC) in the development of Community Information Guides for at-risk townships, providing a tool to support communities and educate them on bushfire risks. Similarly, the Glenelg Shire MEMP considers the VBRC Interim Report in the development of its municipal Bushfire At-Risk Register.
As befits their level of closeness to the community, there are numerous and diverse examples of extra-governmental consultation outlined in MEMPs. Some examples include:
making risk assessment outputs and/or plans available on council websites for feedback
community engagement policies, or the intent to develop them
working groups or equivalent structures comprised of community members to aid in plan development, such as in Corangamite Shire and Yarra Ranges MEMPs. This is better practice aligned with section 60AA(a) of the Act that emergency management plans are to be prepared in a manner that acknowledges and reflects the importance of community emergency management planning
committing to engage with the community to assist in planning for and preventing emergencies
guest attendance at MEMPCs for critical infrastructure owners/operators and community groups.
