Dec 7, 2014 - From Emergency Management Victoria. The Information Interoperability Blueprint we have released is the str
Yarra Ranges Neighbourhood House Network Disaster Resilient Communities Project
Final Project Report 2014 Project Worker, Vicki Ruhr
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“Despite the considerable resources expended by the State Government on improving emergency management arrangements, little overall gain in community safety will be achieved without the active involvement of the community”. Bushfire Royal Commission Implementation Monitor – 2013 Annual Report http://www.bushfiresmonitor.vic.gov.au/home/reports/bushfires+royal+commission+implementation+monitor+ann ual+report+2013
From Emergency Management Victoria The Information Interoperability Blueprint we have released is the strategy for the future provision of information and warnings, for all emergencies in Victoria. It sets the direction and enables Victoria’s emergency services to work better together, with the community, government, not for profit and private organisations. The community is rightly at the centre as providers of information, local capability and receivers of information. The Blueprint articulates a new approach to delivering information to communities before, during and after emergencies. http://www.emv.vic.gov.au/our-work/current-projects/information-interoperability/
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Yarra Ranges Neighbourhood House Network Disaster Resilient Communities Project The Yarra Ranges Neighbourhood House Network Disaster Resilient Communities Project (DRCP) Final Report 2014 details the activities, achievements, challenges and outcomes; and recommendations for the future. This Report is written for a variety of audiences including Regional Development Victoria (the Project funding organisation), government departments and agencies, non government organisations and communities. This document may be reproduced, copied and used for relevant purposes.
This Project is dedicated to all the community members that lost their lives and all the communities that were impacted on 7th February 2009
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Table of Contents Preface ….………………………………………………………
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Summary ……………………………………………………….
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Key Findings & Outcomes ………………………………….
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Key Recommendations ……………………………………….
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Discussion & Conclusion …………………………………...
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References ...…………………………………………………...
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Acknowledgment ………………………………………………
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Attachments …………………………………………………….
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Preface Disasters Prior to commencing working on the Disaster Resilient Communities Project (DRCP), I understood the Project title would bring an extensive and diverse range of topics, issues and perceptions – and also had the potential to elicit feelings of trauma, anxiety and grief for some persons. As a ‘Black Saturday’ survivor who has actively performed the ongoing role of a Community Recovery Volunteer, I also knew that becoming locally-engaged and informed would bring authenticity to the Project and promote trust. This required a lot of time finding out ‘who’s who’, initiating conversations and establishing networks with local residents, community and neighbourhood houses; a wide range of local and state agencies, departments, organisations, (prominent and not so prominent). (Refer previous DRCP Project Reports for detailed list of network & contacts). The field of Disasters and Emergency Management is a vast and fast developing entity, with broad research and development parameters, and ever-changing messages being put out to the community. My vision for the DRCP was to initially structure it quite broadly*, modelling the Project on the excellent “Weather the Storm” Program Manual ( www.weatherthestorm.net.au ) and gradually filter down to a prioritised set of anticipated, community-led and community-driven aspirations. These aspirations set a course for developing the relevant final and key recommendations. In order to realise the desired achievements and outcomes, it was essential to thoroughly frame the DRCP from the outset; and focus upon a community-friendly implementation. Therefore, a straightforward approach was taken to efficiently and effectively implements the Project across an extensive geographic area and within the Project’s given time parameters. An open community-enabling approach was adopted that was informed by the DRCP capacity and resources, ably supplemented by the Healesville Living and Learning Centre. This provided the foundation for the community engagement process, with a clear acknowledgement that it would be the community’s role to agree on its risks and determine any action plan, i.e. knowing that genuine community ownership of any action plan(s) is essential to their acceptance and use. *Although a great number of residents were cognisant of the bushfire risk to their community, and/or had been fire-affected, it was necessary to expand the Project focus somewhat in order to be fully inclusive and capture the audience which possibly associated more readily with other disaster and natural hazard events; such as floods, storms and heatwaves. Nonetheless, bushfires and associated risk/preparation were the prevalent topics arising at the Forums.
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Resilience
Arguably, the notion of and definition of Resilience is a ‘mixed-bag’. Many common-sounding themes are being used (refer below to several examples). Emergency Management practitioners now agree that this widely-used and open-ended term can brings vagueness and confusion, and some feel that assumptive &/or fixed definitions are not altogether helpful. “The characteristics of a person or group in terms of their capacity to anticipate, cope with, resist and recover from the impacts of a natural hazard [Vulnerability] involves a combination of factors that determine the degree to which someone’s life and livelihood are put at risk.” (Ref: Blaike et al 1994, pp 8-9) “A disaster-resilient community has the inherent capacity to deal with any shock, no matter how wellanticipated or surprising.” (Ref: Victorian Emergency Management Reform White Paper December 2012) "A disaster resilient community is one where.... people work together with local leaders using their knowledge and resources to prepare for and deal with disasters. They use personal and community strengths, and existing community networks and structures; a resilient community is enabled by strong social networks that offer support to individuals and families in a time of crisis." (National Strategy for Disaster Resilience, page 5) Nevertheless, most emergency management agencies tend to agree that determining the real meaning of resilience in a community sense is fundamental to reducing risk and the impact of disasters; and local knowledge/what’s occured previously, (i.e. past events informing future consequence and likelihood = risk) is now becoming increasingly recognised to play a great part in disaster management. The term susceptibility has recently entered the disaster and emergency conversation. It is being accepted and more commonly used by emergency service organisations, rather than the term vulnerability, which has often been used in the disaster resilience glossary/nonclamenture. If you asked most people how “vulnerable” they believed they were in terms of a disaster, it is likely to elicit subjective perceptions they would not generally believe they fit in to &/or what they understand to be the vulnerable norm (assuming this translates to weak or frail, and incapable or helpless); and dismiss being portrayed as vulnerable. However, if you ask most people the same question substituting the word vunerable for susceptibility, there is a high probability they would be more accepting of this depiction. Susceptibility is therefore more inclusive a descriptor of any community make-up in an objective sense. This is an important distinction when trying to engage people, and when community participation and shared responsibility is required to minimise the likelihood and consequences of disasters and emergencies on the Victorian community. ‘There is burgeoning literature on using indices to assess community vulnerability. However, these have not been applied to Australia, for Australian communities or based on Australian policy.’ http://www.bnhcrc.com.au/research/resilient-people-infrastructure-and-institutions/251
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Research Extensive research was undertaken throughout the Project duration – this included a lot of study and early familiarisation with the Project target areas – for example, examining the Community Profiles of the Yarra Ranges Shire and the included Murrindindi Shire location; and a further, preliminary consideration of the following ensued to inform the Community Engagement Forums:-
What was the level of ‘community-readiness’ – i.e. prevalent capacity and acceptance of a disaster resilient project? What did the communities already know about Disasters (respecting what had happened in the past/what related initiatives & work had previously been performed in both an informal and formal sense)? What was the communities experience re Disasters (what type of events were typical &/or expected, perceptions and knowledge)? What did the communities know and think about resilience (general definition(s) as used in emergency management sector compared with community definition)? Who were the key players and recognised/trusted community leaders, and community nurturers? How aware, prepared and resilient (already) were the communities? How could the communities be assisted to be better aware, prepared and resilient via the DRCP?
Partnerships “Government emergency service organisation, essential services, local businesses and not for profit organisations must be ready to work with each community according to its needs.” (Ref: Victorian Emergency Management Reform White Paper December 2012). Establishing sound, collaborative relationships and partnering with all relevant stakeholders was early identified as an integral part of the Project. Significant time and effort went in to learning about each individual community’s make-up and issues; and pinpointing the relevant personnel and departments thought to be willing and have capacity/interest in making a contribution to the Project; and beyond. Early, purposeful efforts were made to explore/develop the key, critical themes and topics coming from the Emergency Management Sector compared with those of the local community ; with an aim to realise aligned, practical and lasting Project action outcomes. A welcoming Letter of Introduction was sent by post and email to all active township groups, Shire CEO’s, Officers and Councillors, M.P.’s, NGO’s and Emergency Management Service Organisations in and around the target communities and an extensive email drive was performed, informing about the Project and inviting people to make enquiries/and how to get involved. The response was negligible, although sporadic acknowledgments were received and mention was made of receiving the letter. (Refer attached document) A follow-up of this mail out ensued with direct and successful contact made with the majority of key recipients. After some diplomatic persistence, responses and interest did increase to an extent; and the Yarra Ranges Neighbourhood House Network did their best to try and increase the DRCP profile. Overcoming challenges It became progressively apparent that the intent surrounding the Project regarding performing the desired level of stakeholder and community engagement and consultation was going to be a challenge. This was, I found, in the main to be a direct consequence of the 7 February 2009 Victorian Bushfires Disaster or ‘Black Saturday’ – community members indicated they’d been affected emotionally by ‘Black Saturday’ and also knew of &/or supported people who were directly impacted. They also shared what was a commonplace sentiment throughout the neighbouring regions of the 2009 Bushfires Disaster, i.e. feeling overwhelmed by ‘Black Saturday’ and all the media reports and messages. Page 7 of 27
The Community Engagement Forums produced further valuable insights and valid discussion points. Themes were similar at each session and most residents indicated they were concerned about the lack people’s awareness and preparedness for disasters in their own community. Social media was utilised as a key tool for DRCP awareness and messages, along with efforts made to engage local print media and local radio. Large promotional Project Banners were created and displayed at the Healesville Living and Learning Centre; and at the Community Engagement Forums and Project Information & Display Tables at local festivals. The DRCP evolved organically over 2014, initially guided by conversations with Yarra Ranges Community House Coordinators, Yarra Ranges Shire Community Development Officers, and Emergency Management personnel from Victorian SES and CFA Regional Headquarters. The Final Project Report is wholly reflective of the messages, views and initiatives coming from both local community and stakeholders; and the outcomes surrounding the engagement opportunities had with the local community and those working in the emergency management sector.
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Summary The Disaster Resilient Communities Project (DRCP) commenced at the end of January 2014, and was completed at the end of November 2014. There were 12 communities chosen to benefit from the DRCP, located in around the Yarra Ranges LGA and Toolangi in Murrindindi Shire (refer to Project Overview for list of Project communities), with HLLC being the Lead Agency and Responsible for governance; and the Yarra Ranges Neighbourhood House Network acting as the Project Steering Committee. The 12 communities are all within the East Central region, which includes Melbourne’s north northern and eastern fringe, extending through Alexandra, the Yarra Valley, Mount Baw Baw, the Thomson and Upper Yarra catchments, and reaches down through the Latrobe Valley and South Gippsland. It also includes the Dandenong Ranges, French Island and Mornington Peninsula.
“The diverse landscapes to the north and east of Melbourne, from the high country around Lake Eildon east to the Latrobe Valley and south to Wilsons Promontory, are blessed with some of the richest and rarest flora and fauna in Australia – and arguably in the world. They are also among the most thickly forested and heavily populated areas of regional Victoria. It is precisely this combination of dense forests, lush farmlands and plentiful communities that makes this region so vulnerable to bushfires. Fires that start and spread in East Central can cause significant impacts to our key assets. Approximately 3.2 million people live in East Central, which is 59% of Victoria's population. Of these people, 44% live in peri-urban areas. The population is projected to grow by 28% by 2031 to 4.2 million people – much of this in the peri-urban areas. DEPI has used Phoenix Rapidfire bushfire simulation modelling and the Victorian Fire Risk Register to identify the towns at high risk from major bushfire. East Central overview (refer attached larger map)
(Ref: http://www.depi.vic.gov.au/fire-and-emergencies/managing-risk-and-learning-about-managing-fire/managingbushfire-risk/east-central-bushfire-risk-landscape ) Solid community development principles were used for the Project’s implementation; and has been based on the concept that people are more receptive to and able to better process information during ‘peace-time’, i.e. throughout periods of times where disasters and emergency situations created by natural events are less likely to occur and specifically, well outside the declared, annual bushfire season. Therefore, it was essential for the DRCP work to be performed as efficiently as possible, and ideally before the 2014-2015 Bushfire Season announcements. Page 9 of 27
The ‘health and resilience’ of the community is the defining factor for a community entering any disaster event – and the DRCP offered an opportunity to define jointly what a disaster-resilient community really looked like. The level of ‘community readiness’ is an equally important factor in any community development initiatives. An assessment process was achieved through community conversations, anecdotes and forums and indicators assisted to unearth just how disaster-resilient &/or prepared the Project communities actually were. This work comprised intensive project research – including gathering information regarding community profiles, assets and mapping, examination of relevant reports (i.e. an enormous amount of reading), and facilitating Project Community Engagement Forums at locations where there was a confirmed interest &/or anticipated attendance; along with attendance by the Project Worker at related meetings and significant, relevant disaster, emergency and community resilience conferences. It became increasingly apparent that the anticipated and potential interest shown by local residents in attending the Community Engagement Forums was not going to be as encouraging as hoped. There appeared to be a lack of ‘community- readiness’, &/or appreciation of the Project’s local worth. Thus, the desired aims of strengthening connections and building a foundation for exploring the possibility of an ongoing group did not have the required commitment. However, the enthusiasm and contribution of attendees at the Forums which have been successfully held has been very useful and informative to the Project. The Forums played a significant part, providing opportunities for peer to peer learning, and helped identify that many residents/communities already had networks or methods in place to build disaster resilience. An alternate means of engaging with the community and to gather relevant input and feedback useful to the Project was therefore vital. A community survey/questionnaire was released via the HLLC Facebook Page. The Yarra Ranges Neighbourhood House Network assisted with effectively distributing the survey and information via Community House Facebook pages and/or usual contact channels. There was insignificant interest &/or response from this initiative. A summary of DRCP findings to date; and research conducted in relation to evaluating Community Emergency Preparedness and (existence of) correlating Emergency Plans is revealing the fact that many local residents do not have a “Written Household Emergency Plan” &/or a rehearsed emergency plan (i.e. plan not rehearsed within the last 12 months) Apropos of this concerning inconsistency, a Pilot Program Proposal (draft) was prepared and circulated to the Yarra Ranges Neighbourhood House Network for consideration and input. This Pilot Program Proposal (draft) is included as a key recommendation of the DRCP; and will be directly put to the Emergency Management Commissioner of Victoria at an imminent meeting at the closure of the Project. Meetings & Conferences/Memberships
DRCP ‘Fire-Ready’ Meetings occurred with the Yarra Ranges Neighbourhood House Network representatives and HLLC CEO
Meetings occurred with Yarra Ranges Shire Emergency Management Team
Meeting with Denpasar Disaster Management office of the National Disaster Mitigation Agency (Indonesia) – (please refer below to Agency description)
An opportunity to visit this Agency was taken when I took leave during 2014. Although the office was in the throes of moving to a different location, the personnel took time to discuss the Project and talk about what resilience meant in a local sense in Indonesia, (specifically Bali). Page 10 of 27
It was reiterated to me by the project officers in Bali that the public in general ‘don’t really worry about disasters or emergencies until they happen’ and that there are intrinsic challenges with getting messages out to numerous diverse communities which often lack basic infrastructure and communication channels. More often than not, an inherent district communication system is heavily relied upon in Bali, whereby leaders of regional areas assume the task of disseminating information via traditional village ‘alarm systems’ for example sounding of large wooden ‘bells’ or kul-kul (see photo below) to alert the community something is wrong and they need to gather at the customary halls or village centres to receive information and instructions etc. Despite this rather rudimentary communication system, different kul-kul sounds have different meanings, which are instantly sent and recognised throughout the neighbourhood and often repeated by nearby communities if so required. There is often a surprisingly rapid and well-organised response, with an influx of local volunteers ready and willing to help!
Ironically, I discovered that I was staying in a beach-side area designated as a High Risk area for tsunamis. There was clearly designated evacuation signage displayed throughout this area, as well as large information signs well depicting the area and portraying the levels of risk to the public using a colour-code classification. I was informed that the Agency had a range of informative YouTube animations which were well received by the community and assisting to get awareness messages more widely circulated. This link provides information about tsunamis: - http://balisafety.baliprov.go.id/animasi/animasi-gempa-dantsunami.html The National Disaster Mitigation Agency is the official nationwide umbrella organization for disaster management. Its official mission is disaster risk reduction through the development of a reliable system of early warning and an integrated, coordinated, and comprehensive strategic plan for national disaster management. Its main tasks are to provide guidance and direction in the efforts of disaster management including disaster prevention, emergency response, rehabilitation and reconstruction, and develop standards and guidelines for the establishment of regional disaster management agencies.
The Healesville Living and Learning Centre (HLLC) submitted the DRCP as an entry for the 2014 Fire Awareness Awards in the Community Preparedness category (http://fireawarenessawards.com.au/). The annual Fire Awareness Awards received an overwhelming response this year, with more than 110 entries from across Victoria. The submission was gratefully acknowledged and encouragement was received to continue making a difference in the community via the DRCP.
HLLC attended the 2014 Annual ANHLC Conference, where the DRCP was promoted and engagement with CFA Representatives attending the Conference was sought but not realised. Page 11 of 27
The DRCP became a member of the University of Melbourne Centre for Disaster Management and Public Safety. The Centre for Disaster Management and Public Safety (CDMPS) is research centre established at the University of Melbourne focused on conducting multi-disciplinary research and training on disaster management and public safety both nationally and internationally. ( http://www.cdmps.org.au/ )
Meeting with Craig Lapsley, recently appointed as Victoria’s first Emergency Management Commissioner (Meeting Pending – 12/12/14)
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Key Findings & Outcomes The Project findings suggest the majority of people living in high fire risk areas within the chosen Project communities either generally do not accept or are often ignoring the bushfire preparedness messaging. Many have indicated during the Project’s duration that they would simply choose to stay put. This has been particularly evident with people who are living independently &/or are frail aged. The conventional ‘top down’ approach to emergency management is changing to combat this phenomenon. Governments in Australia and around the world now recognise the importance of local involvement in emergency management. Municipal planning processes have a different job to perform – for example, assessing key risks, designating appropriate treatments, and coordinating the agency response. Simply extending the municipal fire management planning role will not change the way things are. What is required is a new form of collaborative and supported local action, and one that supports an allhazards approach and become a way to support the government’s White Paper on Victorian Emergency Management Reform that “provides a ‘road map’ for emergency management reform over the next ten years that will result in more resilient and safer communities.” (Ref. http://www.dpc.vic.gov.au/index.php/news-publications/victorian-emergency-management-reform-white-paper )
The Yarra Ranges Shire Emergency Management Team has shown great interest in supporting the DRCP and has commenced working with HLLC & YRNH Network in developing a ‘Partnership’s in Emergency’ agreement to: 1. Raise awareness of Relief & Recovery of both local government and Neighbourhood Houses 2. Discuss local Neighbourhood Houses’ capacity in support of Emergency Preparedness; Response & Recovery 3. To discuss & decide the merits of; and arrangements for a formal partnership
As anticipated, the Project revealed the February 2009 Bushfires Disaster has presented issues which have made local residents more anxious, and even confused about bushfire planning arrangements and personal planning around how to reduce their own risk and harm. This circumstance has ostensibly meant there has been too much to process and for some people, and it appears it is easier for some to cope by being in denial or opting to simply stay put...i.e. “wait and see”. Community Engagement & Consultation The DRCP Community Engagement Forums conducted at the local Neighbourhood Houses and Healesville Living and Learning Centre were focused on attracting residents who had been fire impacted and/or were living in high fire risk areas of the two municipalities. The Forums were run in a relaxed and welcoming environment, inclusive of all residents and those associated with and working in the community/emergency sector. Ample opportunity was provided to get people connected and thinking; telling their related stories; and sharing about their own risk and safety when facing an emergency situation, whilst covering the following key objectives:-
Assessing the level of ‘community-readiness’ – i.e. how ready was the community in relation to a. disaster planning, preparedness, action and recovery; & b. engage with disaster resilient projects Reinforcing the message(s) of benefits from getting connected with your local community and getting to know your neighbours, thereby gaining important relationships prior to and during a disaster; and when necessary, getting out of risk of fire in a planned and well prepared manner Ensuring they understood the importance of having an effective, and rehearsed personal or household emergency plan Finding common/agreed solutions for the identified emergency issues and risks in their particular community Page 13 of 27
Failed programs may be the result of the simple fact that implementation was attempted before the community was ready to accept the idea that there was a problem and something needed to be done; and neither success nor failure can be attributed to the soundness of the concept of prevention or the quality of planning that went into the program’s blueprint for action. In other words, the relative level of a community’s readiness to accept and support a program is a key element in its success, and one that is often neglected during the planning process. (Ref: http://www.triethniccenter.colostate.edu/docs/Article1.pdf ) Residents were generally forthcoming in voicing their opinions and putting ideas; and shared their past experience about major bushfire and storm events. Some residents voiced a level of mistrust surrounding the warning information they would get compared to what they really needed; and indicated they would rely upon their family and neighbours for information. (Refer previous reports for details of Community Engagement outcomes/conclusions) A resident in his senior years openly voiced at the commencement of one of the Forums that his intentions would be to ‘stay and defend’, he further explained he had ‘got fire-fighting equipment, but hadn’t gotten around to setting it all up properly yet.’ A local CFA Brigade Captain was present at this Forum and gave an account of how physically and psychologically tough it was to actively patrol your property for ember attack, and how taxing it was to be fighting a ‘fire and defending one’s home, often for indefinite and long periods. I was able to provide a brief, personal account of what I had experienced on Black Saturday and reiterated about the related physical and mental demands; and the enormous wherewithal people needed to have in order to be capable of coping with the impact of a bushfire. At the end of the Forum session, this same resident revealed that he ‘hadn’t really thought about that sort of thing’ and was going home to reconsider his original plan with his partner. Another Forum attendee (local resident) disclosed that his partner was disabled and therefore he would be the sole person responsible in any bushfire event. This resident soon realised through further group discussion, that as his partner had little capacity to assist and they resided on a large property abutting native forest, he needed to also review his intended plan. STRATEGIC BUSHFIRE MANAGEMENT PLAN for East Central ‘Over the past two years, over 500 people have contributed to the development of this plan including four public workshops in May (attended by several HEWI members). The final plan will be available in late 2014. The plan will describe where the high bushfire risk areas are on public land and private property. It will explain how DEPI plans to tackle the threat of bushfire on public land and he priorities to reduce risk on private land. More specifically, it will: Identify significant community infrastructure, economic and environmental assets that are most at risk of fire in the landscape; and describe bushfire behaviour in the landscape; and outline DEPI’S strategies and actions to reduce bushfire risk, and monitor our performance to drive continuous improvement over time.’ The majority of attendees at the Healesville ‘workshop’ were dismayed with the models presented and the obvious haste with which the final plan is being written. Community input was extremely limited as no submissions could be presented – so much for ‘community consultation’. Healesville Environment Watch Inc (hewi) Newsletter June 2014
Some critical questions emerge as opportunities for communication researchers. Where in the cycle of disaster management does the community reside? At what stage should the community be engaged and involved as participants rather than recipients of service provision? How can they be empowered and their voices enhanced in developing the participatory potential of meaningful resilience? This is even more vital when an overemphasis on expert-driven services may replicate existing top-down (and potentially) exclusionary delivery methods and thus fail to meet the needs or engage the potential of communities to contribute and take ownership of ‘everyday’ resilience (Rogers 2013). http://www.em.gov.au/Publications/Australianjournalofemergencymanagement/PastIssues/Pages/AJEM28FOUR/Co mmunicationresearchneedsforbuildingsocietaldisasterresilience.aspx Page 14 of 27
‘CRCs were not the only ones vying for the attention of community members. There were competitors for their attention. Many bodies, organisations, and others made efforts, often not collaboratively with each other, to consult communities. These efforts were sometimes seen as burdensome. ‘ People have certainly had enough of meetings. Every time a new process begins or another project is flagged, or another agency enters the community, more meetings. http://www.ccam.org.au/site/DefaultSite/filesystem/documents/Publications/Towards%20PlaceBased%20and%20CommunityLed%20Disaster%20Preparedness%20Responsiveness%20Recovery%20and%20Renewal_Final%20for%20CatholicCar e.pdf
Whilst emergency service agencies can provide information and warnings to communities at risk of emergencies, the overall success of the warning is determined by the communities’ ability to understand and accept the warning, and undertake subsequent action. I knew it was essential that communities be helped to understand their risk environment and know what to do on receiving a warning message. These topics were discussed at the Community Engagement Forums. It is obvious that work needs to be undertaken to help empower communities to act in a timely and safe manner thereby reducing the loss of life, personal injury and damage to property and infrastructure, and contribute to the effectiveness of any warning system. It was found during the Community Engagement Forums that residents are not regularly engaging with community education and preparedness programs, for example – those run by local CFA Units. It was also found that people often didn’t have a clear understanding of the Emergency Alert (telephony warning system) &/or the available FireReady app (the official Victorian Government app for access to timely, relevant and tailored warnings and information in Victoria). Sirens and other hardware systems tend to be inadequate without social reinforcement and integration into the fabric of the community. On the other hand, they are evaluated individually in relation to prior experience and interpreted individually before being acted upon. Very different actions often result from these individual assessments (Drabek, 1986). On receipt of a warning, people tend to turn to others for help to interpret the information and make decisions. This has been described as group coalesce (Drabek, 1986). The initial tendency is to disbelieve, minimise, deny, misinterpret or ignore warnings and confirmation is often sought from trusted people (family, colleagues, friends and neighbours) regardless of their expertise, rather from relevant authorities (Drabek, 1986). (Ref: Social Effects of Emergencies: Research findings of the last half century. Rob Gordon, PhD, MAPS, Clinical Psychologist)
Advertising Campaign – Released 7 Dec. 2014-12-07 “We, the fire services, can't be at every letter box, can't be at every home” Craig Lapsley, Fire Services Commissioner The principle "leave and live" is at the centre of a new $3.5 million advertising campaign launched by Daniel Andrews, the new Victorian Premier and Craig Lapsley, the Fire Services Commissioner. Research by the Country Fire Authority found three quarters of Victorians believed they would be told when to evacuate by emergency service workers. http://www.abc.net.au/news/2014-12-07/victorians-urged-to-leave-and-live-ahead-of-fire-season/5949708
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Volunteers – Building Resilience & Capacity There is a significant and largely untapped opportunity for state emergency agencies to contribute to building community resilience to natural hazards by supporting and engaging with non-traditional emergency volunteers – and volunteering organisations – in new ways. At present, Volunteering Victoria is the state peak body for volunteering. Membership appears to concentrate upon promoting corporate organisations to join and there is an associated membership fee, which may be preclusive for some. A new initiative, ‘Spontaneous Emergency Volunteer Manager Pilot Program’ from Volunteering Victoria, in partnership with Volunteering Geelong, has commenced to recruit, train, support, deploy & debrief a workforce of skilled volunteer managers to help community organisations manage spontaneous emergency volunteers during disaster relief and recovery. It shall be interesting to see the outcome of this pilot program; and if it is to be rolled out more widely throughout Victoria. The traditional model of emergency volunteering employed in Australia is based on formal, accredited volunteers, often associated with emergency management agencies and are primarily involved in the roles of response and recovery. Whilst this traditional form of volunteering is essential and has many strengths, it is exclusive of a potentially large number of altruistic and skilled organisations and people capably equipped and motivated to coordinate responsibilities surrounding volunteer recruitment, support and supervision, as act a vital adjunct to the traditional forms of volunteering - before, during and well after emergencies in a less formal way, such as local neighbourhood houses. Currently there are barriers to volunteering in the emergency management sector, and vis a vis there are undefined ‘regulatory’ policies and a lack of appropriate screening/registration procedures appear to be in place to ensure persons &/or organisations spontaneously entering the emergency areas are of good repute/background. After the 7 February 2009 ‘Black Saturday’ bushfire event, survivors encountered a number of persons/organisations with dubious character entering the affected communities and offering ‘to help’. It was regrettable to discover that vulnerable survivors were being preyed upon and had become victims to scams and sadly serious and concerning allegations were made of inappropriate conduct being displayed by supposed well-meaning ‘volunteers’. Formal reporting of these allegations did and didn’t occur, and this was often dependent upon whether community members felt supported or not. The SES has recently redeveloped its course to train volunteers to help deliver community education programs; understanding that emergencies happen with little or no warning. Disaster survivors are more often than not the immediate doers and rescuers, and being local, they have local credibility, knowledge and understanding of local issues. They already have established local networks. Although it is presumed the direct capacity of survivors will be greatly impeded by the emergency event and the aftermath trauma, by building community resilience prior to disasters and emergencies, it would also be presumed there will be a more ready and better functioning local capacity. “Much behaviour in the immediate aftermath is organised by the need to re-establish family relationships and be together or establish communication. Once the safety of family members is established, small groups spontaneously form around tasks or where people find themselves together for a time. New community leaders often emerge in the early aftermath; new norms and disaster-specific principles begin to organise the activity of those involved in recovery. People often take up emergent roles because of their experience, skills or other qualities required by the situation.” (Ref: Social Effects of Emergencies: Research findings of the last half century. Rob Gordon, PhD, MAPS, Clinical Psychologist) Page 16 of 27
Key Recommendations Disasters and emergencies such as bushfires, floods and heatwaves can affect all Australians, no matter what their background or status – but they don’t affect us all equally. Experience and research tells us that disasters are in ‘profoundly discriminatory’, both in where they strike, and in the way they affect people. In the last decade, we have seen natural disasters cause more damage and destruction across Australasia and our neighbouring region than ever before. (Ref: Dr Richard Thornton, Chief Executive Officer, Bushfire and Natural Hazards CRC) Yet we find communities do not adequately prepare and plan for the needs of people before, during and after emergencies. We need to think differently about how to deal with natural disasters into the future. And we need to take heed of and use the lessons we have learnt from the past. Many community initiatives that provided direct and practical assistance after Black Saturday were indicative of the great work that can come from the ground, particularly if supported and sustained by ‘outside’ influencers. These recommendations are in keeping with the Project’s objectives and will directly assist to create a positive foundation of a sustained, local community disaster preparedness and resilience in to the future:-
That a Community Pilot Project is implemented to foster the growth of disaster resilient communities at a grass-roots level, via the established community sector organisations, specifically Yarra Ranges Neighbourhood House Network (including the Healesville Living and Learning Centre, as the primary pilot project support and resource facility); and the emergency management sector seeks to better understand the diversity of communities; and supports the concept of using the existing network of local neighbourhood houses as a highly capable and competent resource for community information, awareness initiatives and educational +program delivery surrounding disaster resilient communities (refer Pilot Project Proposal attachment)
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That Yarra Ranges Council & Murrindindi Council develops an Emergency Information Kit for new residents moving in to high fire risk areas. Such a Kit also to be made available to all existing residents
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That Yarra Ranges Council & Murrindindi Council stand behind community leadership and leaders, and support/promote related emergency management community initiatives and community goals
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That the disaster resilient energy and enthusiasm, skills and wherewithal that exists in many communities in the Yarra Ranges & Murrindindi Shires will be actively recognised and supported by the emergency management sector; and that good practice is highlighted to motivate others
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That Victoria’s culture of volunteerism and community service is strengthened; and exploration of new ways to a. release capability held within the Victorian public sector; and b. build community resilience through developing alternative models for emergency volunteering that are inclusive of non-traditional emergency volunteers and volunteering organisations
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Discussion & Conclusion It is widely acknowledged that people live in ‘different worlds’ – i.e. there is real difference between ‘Bushfire Professionals’ and Householders; and that working together to build stronger communities means we can be working together for the best (Ref: Rob Purcell, MFB Assistant Chief Fire Officer, Emergency management Conference 2014). The crucial objective of the DRCP to successfully bring community representatives and agencies together to focus on local communities’ issues problems and risks; and link local community-led actions to municipal plans by identifying and acknowledging local priorities and action has been realised. Ensuring a better-efficient, practical and enduring community disaster preparedness action-outcome of the DRCP is sustained as a vital legacy is one that can be readily adopted by local Neighbourhood Houses. A written (with ideally, a rehearsed) Emergency Household Plan needs to be considered as one of the best indicators of preparedness and the most common, practical and beneficial safety precaution implemented by households, locally and state-wide. A co-ordinated, community inclusive and innovative approach to ensuring local community safety solutions are realised can be implemented reliably, rapidly and easily utilising the established resources and recognised, trusted networks of the Yarra Ranges and district Neighbourhood Houses. The work surrounding the Project has really only just begun and building upon both local knowledge and capabilities, with agency expertise, experience and resources will actively enable communities to take ownership and be empowered to lead the process. In closing, I wish to passionately share how I have to come to fully appreciate that supporting the sustained building of community-based, grass-roots disaster resilience is fundamental to reducing risk and the impact of disasters. As the DRCP has really only begun to cement the vast amount of work performed during 2014, there’s still a lot to do and it is still very much a work in progress!
MESSAGE FROM THE FIRE SERVICES COMMISSIONER
Building resilient communities in Victoria is our strongest safeguard against emergencies and disasters. That is why the changes that have already begun in emergency management in this State place the community at the centre. This work starts with individuals and families, in neighbourhoods, and in larger and often diverse communities. The focus of the first full year of the Fire Services Commissioner’s role has been to build on the early foundations laid with the fire services around change, interoperability and commitment to community. Leading, enabling and facilitating change is critical to the future capacity, capability and resilience of Victoria’s fire and emergency services. For both individuals and organisations, that change can be challenging and sometimes difficult. However, a clear message to emerge from the disastrous 2009 bushfires and the floods of 2010-11 and 2012 was that doing more of the same will simply not meet the needs of Victorians into the future. http://fire-com-live-wp.s3.amazonaws.com/wp-content/uploads/DOJV3469-Annual-Report-290812.pdf Page 18 of 27
DRCP Research Reference List
Peeling the Onion Yarra Ranges Neighbourhood House Network http://www.healesvillelearningcentre.org
Weather the Storm Program National Women’s Rural Coalition http://www.weatherthestorm.net.au/
Characteristics of a Disaster-resilient Community – A Guidance Note John Twigg for the DFID Disaster Reduction Interagency Coordination Group https://practicalaction.org/docs/ia1/community-characteristics-en-lowres.pdf
Community Readiness and Prevention Programs Joseph F. Donnermeyer, Barbara A. Plested, Ruth W. Edwards, Gene Oetting and Lawrence Littlethunder http://www.triethniccenter.colostate.edu/docs/Article1.pdf
Information Interoperability Blueprint Emergency Management Victoria http://www.emv.vic.gov.au/our-work/current-projects/information-interoperability/
Australian Emergency Management Library http://www.em.gov.au/library/Pages/default.aspx
CFA Fire Ready Kit – Updated 2013 http://www.cfa.vic.gov.au/plan-prepare/fire-ready-Kit/
Surf Coast Shire Resilient Communities Project http://www.surfcoast.vic.gov.au/My_Community/Emergencies_Safety/Resilient_Communities_Project
Bendigo Community Resilience Building Pilot Project Survey Ethics Liaison Officer, Faculty Human Ethics Committee School of Psychological Science, La Trobe University, Melbourne Campus http://www.bendigo.vic.gov.au/About_the_City/News_and_Engagement/Media_Releases/Survey_to_help_ build_Greater_Bendigos_disaster_resilience#.VHwMN2ddCos
Developing local partners in emergency planning and management: Lyttelton Time Bank as a Builder and Mobiliser of Resources during the Canterbury Earthquakes, 2014 Lucie K. Ozanne, University of Canterbury & Julie L. Ozanne, Virginia Tech http://ir.canterbury.ac.nz/bitstream/10092/8208/1/12646314_ozanne%20%26%20ozanne_Earth%20Quake _report.pdf
Bushfires & Natural Hazards CRC Research Projects Bushfire and Natural Hazards CRC http://www.bnhcrc.com.au/resources/1299
Towards Place-Based and Community-Led Disaster Preparedness, Responsiveness, Recovery and Renewal Cross-Sectoral Conversations about Innovations and Struggles, Learnings and Changes in the Aftermath of the February 7 2009 Black Saturday Firestorm A shared Inquiry among Local Government Authority officers, Community Service Organisation workers and Community Recovery Committee members hosted by CatholicCare Bushfire Community Recovery Service Daryl Taylor and Helen Goodman http://www.ccam.org.au/site/DefaultSite/filesystem/documents/Publications/Towards%20PlaceBased%20and%20CommunityLed%20Disaster%20Preparedness%20Responsiveness%20Recovery%20and%20Renewal_Final%20for%20Cat holicCare.pdf Page 19 of 27
Facing a disaster: the brain makes it harder than you expect http://www.abc.net.au/news/2014-10-22/what-happens-during-a-bushfire/5832110
National Fire Danger Rating System Probabalistic Framework Project Final report year two T.D. Penman, M. Bedward and R.A. Bradstock Centre for Environmental Risk Management of Bushfires, University of Wollongong http://www.bushfirecrc.com/resources/research-report/national-fire-danger-rating-system-probabilisticframework-project
Community Members’ Responses to Bushfire Threat An Analysis of Five Years of Post-Bushfire- Interviews Jim McLennan School of Psychological Science, La Trobe University, Victoria, Australia & Bushfire Cooperative http://www.bnhcrc.com.au/resources/presentation-slideshow/1339
Australia prepares for ‘dangerous’ bushfire season BBC News Saffron Howden, Sydney Australia 20 October 2014 https://www.google.com.au/search?q=Australia+prepares+for+%27dangerous%27+bushfire+season&ie=utf8&oe=utf-8&aq=t&rls=org.mozilla:en-GB:official&client=firefoxa&channel=nts&gfe_rd=cr&ei=7r1qVNvGO8fC8geGoIHgDQ
National Emergency Management Volunteers Summit 30-31 May 2011 Transcripts http://www.em.gov.au/Volunteers/Pages/2011NationalEmergencyManagementVolunteersSummit.aspx
Disaster and disadvantage Social vulnerability in emergency management 2014 VCOSS Victorian Council of Social Service http://vcoss.org.au/document/disaster-and-disadvantage-social-vulnerability-in-emergency-management/
Sharing Responsibility in Australian Disaster Management Final Report for the Sharing Responsibility Project Blythe McLennan and John Handmer RMIT University Bushfire CRC Ltd 2014 http://www.bushfirecrc.com/sites/default/files/sharingresponsibilityfinal_report.pdf
Building our nation’s resilience to natural disasters Australian Business Roundtable for Disaster Resilience and Safer Communities Comprehensive paper prepared by Deloitte Access Economics - Released: 16 July 2014 http://australianbusinessroundtable.com.au/white-paper/research-report
Community Assessment & Engagement Tool Targeting the delivery of Red Cross Emergency Services preparedness activities Australian Red Cross 2013 http://www.redcross.org.au/
A Synthesis of Bushfire CRC Community Safety Research (2003-2013) Including Post-Fire Contact Surveys – Bushfire Cooperative Research Centre 27 April 2014 Skinner & Skinner Consultants http://www.bushfirecrc.com/sites/default/files/managed/resource/final_community_safety_crc_synthesis_ 2014-29-04_v1_0_.pdf Page 20 of 27
Victorian Bushfire Recovery Five Year Report February 2014 Fire Recovery Unit in the Department of State Development and Innovation http://www.rdv.vic.gov.au/__data/assets/pdf_file/0006/209436/Victorian-Bushfire-5-Year-Report297x210mm-Online.pdf
SES Get Ready Guide, QLD The Department of Community Safety, Emergency Management Queensland, State Emergency Service http://www.emergency.qld.gov.au/emq/css/pdf/SES_Get_Ready_Guide%202010.pdf
Preparedness and vulnerability; an issue of equity in Australian disaster situations Dr Helen Boon, James Cook University 2013 https://ajem.infoservices.com.au/items/AJEM-28-03-05
Opinion: Emergency management and disaster resilience education in Australia: How does it stack up internationally? Interviewee: Raelene Thompson, Executive Director of Australian Emergency Management Institute (Appointed 2010) http://www.em.gov.au/Publications/Australianjournalofemergencymanagement/PastIssues/Pages/AJEM26F OUR/Opinion-Emergency-management-and-disaster-resilience-education-in-Australia-How-does-it-stack-upinternationally.aspx
The Australian Natural Disaster Resilience Index Assessing the Resilience of Australian Communities to Natural Hazards Phil Morley & Melissa Parsons, University if New England, Armidale, NSW http://www.bnhcrc.com.au/research/resilient-people-infrastructure-and-institutions/251
Resilient Nillumbik Project Project Control Group; Justin Murray, Adrian Cully, Mark Noonan http://www.nillumbik.vic.gov.au/Home
Bushfire Awareness and Preparedness of Frail Older and Vulnerable Residents in Yarra Ranges – Project Report July 2010 Yarra Ranges Council http://fe.yarraranges.vic.gov.au/files/debc1aee-f5d7-40ef-b97f9de900b70079/Bushfire_Awareness_and_Preparedness_web_version.pdf
Vulnerability and Capacity Assessment – Lessons learned and recommendations International Federation of Red Cross and Red Crescent Societies http://www.ifrc.org/Global/Publications/disasters/vca/llearned-recommendations-en.pdf
Get Ready & Survive: Plan for an Emergency The ABC Emergency Team (Updated Wed 22 Oct 2014) http://www.abc.net.au/news/emergency/plan-for-an-emergency/
Warrandyte Community Emergency Preparation Planner Be Ready Warrandyte Program – Warrandyte Community Association http://warrandyte.org.au/be-ready/warrandyte-community-emergency-preparation-planner/
Municipal Emergency Management Arrangements May 2012 Yarra Ranges Council http://www.yarraranges.vic.gov.au
Municipal Emergency Management Plan May 2013 Murrindindi Shire Council http://www.murrindindi.vic.gov.au/Your_Council/Emergency_Management/Municipal_Emergency_Manage ment_Plan Page 21 of 27
Acknowledgements I would like to formally acknowledge the Healesville Living and Learning Centre and the Yarra Ranges Neighbourhood House Network for their support for and participation in the Disaster Resilient Communities Project (DRCP). The following are acknowledged expressly for providing such great and ongoing encouragement, mentoring and support throughout the duration of the Project:-
Karen Kisala, CEO Healesville Living and Learning Centre Jeanene Howard, Ex-Coordinator, Selby Community House Helen Goodman, Inquiring Practitioner & Previous Hub Captain, Kinglake Community Services Hub, Bushfire Recovery Services Unit, DHS The Yarra Ranges Neighbourhood House Network Members; Toolangi and District Neighbourhood House
Acknowledgement must also go to the local residents and community participants in the DRCP who were willing to share their views and ideas, and particularly their knowledge of and experience with previous disasters and emergency situations. To Cindy McLeish MP and staff; and Joanne Achison at the Australian Emergency Management Institute for their continued support and assistance with sourcing project research documents, reports and promotional material that were otherwise difficult to obtain. And to the staff and officers at both Yarra Ranges and Murrindindi Shire Councils, the Emergency Management Agencies personnel and the many NGO’s who generously gave their time, interest and support to the DRCP. Lastly, I wish to thank Craig Lapsley, the Victorian Emergency Management Commissioner, for his continued interest in the Project; and making time to come and meet with all the DRCP affiliates in Healesville at the end of the Project. I thank everyone for their generous support and valuable contributions made to the Project during 2014.
Photo – First Black Saturday Kinglake Ranges Community Memorial, 7 February 2010 ‘Community Thank You’ concept design by Vicki Ruhr
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Source: http://www.depi.vic.gov.au/fire-and-emergencies/managing-risk-and-learning-about-managingfire/managing-bushfire-risk/east-central-bushfire-risk-landscape
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