Foundations of QFRS - Queensland Fire and Rescue Service ...

Foundationsof Queensland Fire and Rescue Service

Department of Emergency ServicesQueensland Fire and Rescue ServiceKEDRON QLD 4031© Queensland Government 2008This work is copyright. Apart from any use as permitted under the CopyrightAct 1968, no part may be reproduced by any process without prior writtenpermission from the Queensland Fire and Rescue Service.

ForewordIntroductionThe international focus on the preparedness and capability of emergencyservices has never been greater.Across the board, enormous challenges exist that require focus and anenduring commitment to developing a flexible, well-defined doctrine.This doctrine is designed to shape and educate, foster and encourageall members of the Queensland Fire and Rescue Service. It supportsand recognises our capabilities and provides the principle framework tounderstanding our commitment to the community, environment and thestate.Relevancy goes well beyond the present and learning from the past,it embraces both and recognises consistency within our organisation,leadership and an ability to evolve to meet the challenges of social andtechnological change.Foundations of Queensland Fire and Rescue amalgamates the coreprinciples that support our strategic and operational environment.The aim of this publication is to describe the nature and scope ofQueensland Fire and Rescue Service operations within the Department ofEmergency Services framework by explaining how it is structured and howthe Queensland Fire and Rescue Service undertakes its role in protectingthe community. This publication is a key reference for use by firefighters,support staff and senior management in all urban and rural headquarters,fire stations, brigades and affiliated training organisations. It is designed toshape the thinking of personnel responsible for planning and coordinationand serve as a resource to manage all types of cooperative activities.This publication details aspects of the planning process within theDepartment of Emergency Services and describes the interaction of theQueensland Fire and Rescue Service with other State and AustralianGovernment agencies and civil organisations.I commend this handbook as it describes not only what the QueenslandFire and Rescue Service does, but why we do it.Lee A. Johnson AFSM MIFireECommissionerFoundations of Queensland Fire and Rescue Service 3

IntroductionContentsPageForeword 1Preface 2Why We Need Strategic Doctrine 3Contents 4List of Illustrations 5QFRS - Purpose and Mission 6QFRS - Our Values 7CHAPTER 1 - PHILOSOPHY OF THE FIRE AND RESCUE SERVICE 8Overview of QFRS 10Strategic Philosophy of QFRS 17CHAPTER 2 - QFRS TODAY - OUR CAPABILITIES 22Relationships and Responsibilities 26QFRS Organisation and Resources 27CHAPTER 3 - OUR ROLE IN IDENTIFYING AND REDUCING COMMUNITY RISK 42The 5 R’s 42Research, Information and Analysis 45Risk Modification 46Readiness 532 Foundations of Queensland Fire and Rescue Service

IntroductionCHAPTER 4 - OPERATIONAL RESPONSE AND RECOVERY 58Response 58Concept of Operations 59Emergency Response to Incidents 65Joint Operations 70Recovery 71CHAPTER 5 - ENHANCING CAPABILITY 74Workforce Planning 75Training Capability 79A Vision for the Future 82LIST OF ILLUSTRATIONSFigure 1–1: Hierarchy of Documents 14Figure 1–2: Hierarchy of Strategic Planning 15Figure 2–1: Seven Regions of Urban and Rural Operations 28Figure 2–2: Structure of Operational Command 30Figure 3–1: Comparison of the Existing Arrangements and 5 R’s Approach 42Figure 3–2: The 5 R’s Approach as a Continuous Cycle 43Figure 3–3: QFRS Risk Assessment Process 47Figure 4–1: The Basic Structure of AIIMS 62This publication is also available on the Queensland Fire and Rescue Service website:http://www.fire.qld.gov.auFoundations of Queensland Fire and Rescue Service 3

IntroductionOur ValuesQueensland Fire and Rescue Service values reflect a culture developedin the workplace environment. They reveal a level of commitment andprofessionalism essential to do the job and meet the expectations of thecommunities that firefighters serve.Our Values guide each and every transaction we have with our stakeholders:AccountabilityWe are accountable for our decisions and our performance.Community ServiceOur people have a commitment to the communities we service and community safety.DiversityWe recognise the value and the inclusion of people from a wide variety of backgrounds ineverything we do and foster an environment where people feel safe from harassment anddiscrimination.IntegrityWe support open and honest communication and act with integrity.LeadershipWe value and foster leadership based on our common vision, strategic direction and highstandards of ethical behaviour.LearningWe value sharing of information and constructive feedback in order to continuallyimprove our services.SafetyWe are strongly committed to the provision of a workplace that is free from harm.TeamworkWe encourage a work environment based on teamwork, mutual support, commonpurpose, trust, and respect for the history and cultures of all the emergency services,volunteer services and others who contribute to our business achievements.Foundations of Queensland Fire and Rescue Service 7

Chapter 1Philosophy of the Fire and Rescue ServiceChapter 1Events that disrupt our communities and place life and property at risk are complex anddynamic. Firefighting and rescue requires precise skills underscored by an organisationalframework that includes leadership management, command, support, firefighting,communications, fleet and equipment.This chapter describes the overall environment in which the QFRS operates. It includesthe capabilities provided by its trained personnel, the overriding importance of safetyand the utility of fire and rescue services to the state.QFRS – Integral to a Safe and Resilient QueenslandQueensland is one of only two states in Australia that has a single fire service protectingboth urban and rural communities. The cornerstones of service delivery are built on riskreduction and rapid response.Economic productivity is enhanced through efficient service provided by QFRS. Riskreduction programs reduce the likelihood of fires in buildings, exposure to bushfire riskand seek to make communities more aware of the dangers they may face. Road accidentawareness programs, together with rapid extrications from vehicle crashes, improvesurvival rates and subsequent recovery.Increased resources within the QFRS are being directed to identifying and managing risksagainst the individual, workplace and environment supporting the long term preventionof avoidable emergencies.The presence of QFRS crews across the state reflects community expectation anddemographic shifts, assuring all Queenslanders that assistance is available whenrequired.8 Foundations of Queensland Fire and Rescue

Scope of Support to QueenslandOver 68,485 calls are responded to annually by QFRS from 239 urban fire stations and1,519 Rural Fire Brigades across the state. With an operating budget of over $350M, QFRSfirefighters attend over 14,741 mobile property accidents and 15,014 fires and explosionsper annum. QFRS also delivers numerous external commercial programs annually,leading to qualifications being gained by approximately 24,000 students and businesses.Chapter 1Additionally, resources are directed towards education with over 90,000 children anda significant number of adults receiving lessons in fire safety each year. Smoke alarmsare now mandatory in all residencies. In the 2006-07 financial year, 11,700 premisesother than private dwellings were inspected for fire safety and deemed complete andcompliant.Across the state, 2,422 fire warden districts and 227 chief fire warden districts deliveradvice regarding safe lighting of fires, fuel reduction, rural fire hazards and offer supportto agricultural practices that encourage effective land management.QFRS continues to research, develop and implement programs and initiatives thatimprove fire safety in Queensland communities. A range of key initiatives contributes tothe protection of people, property and the environment from fire.These initiatives include strategies to ensure optimum outputs encompassing:• Community Safety and Awareness;• Operational Preparedness; and• Response and Recovery.QFRS identifies vulnerable communities, focusing on ‘at risk’ groups, and establishingcommunity education and awareness programs such as:• Fire Education and the Road Crash Awareness Program for Year 1 andYear 12 students respectively;• Bushfire Prepared Communities; and• ‘Prepare, Stay and Defend or Go Early’ .The delivery of firefighter education and training programs is integral to the ability tomaximise optimal operational preparedness, and response and recovery outputs.Foundations of Queensland Fire and Rescue 9

Overview of Queensland Fire and Rescue ServiceChapter 1Trends that Affect Service DeliveryQueensland’s increasing population (76,000 per year) presents the single greatestchallenge to service delivery across the state. With greater demands on infrastructure, anageing population and higher community expectations, government agencies are facedwith a growing pressure to provide more services, in less time and to more people.Climate change is likely to initiate further impact across the state with predictions that by2030 there will be higher annual temperatures and a greater number of days in excess of35C and lower annual rainfall. Droughts may be longer in duration, tropical cyclones moresevere and increase in extreme fire weather days in South East Queensland.National ContextThe legislative responsibilities for emergency management rest with the states andterritories with the Australian government providing a level of operational advice viaEmergency Management Australia (EMA). There is no Department of Emergency Servicesequivalent at a Commonwealth Level.The state is responsible for all aspects relating to fire and emergency research,information and analysis, risk modification, readiness, response and recovery. WithinQueensland, this is coordinated through the DES, but involves many other agencies.Australasian Fire Authorities Council (AFAC). QFRS has been an active member of AFACsince its inception in 1992. The DES is an affiliate member of AFAC. QFRS hosts AFACconferences as they rotate through jurisdictions and participate fully in its working groupsand projects.Key Partners and StakeholdersThe QFRS is a member of a network of emergency services within, or supported by, theQueensland DES. The Department consists of three operational agencies:• Queensland Fire and Rescue Service;• Queensland Ambulance Service (QAS); and• Emergency Management Queensland (EMQ).10 Foundations of Queensland Fire and Rescue

The agencies and services within the DES consist of 8,000 paid staff and over 85,000volunteers including:• QFRS Rural Operations;• QFRS Volunteer Scientific Officers;• Honorary Ambulance Officers;• State Emergency Service;• Emergency Service Units;• Volunteer Marine Rescue Association Queensland;• Surf Life Saving Queensland;• Australian Volunteer Coast Guard Association; and• Royal Life Saving Society.Relevant Queensland LegislationThe QFRS has responsibilities within the DES to administer the following Queenslandlegislation:• Fire and Rescue Service Act, 1990;• Dangerous Goods Safety Management Act, 2001; and• Emergency Services Legislation Amendment Act, 2001 and 2002.Numerous other legislation affects how QFRS conducts itself.Expectations and Support to GovernmentGovernment has a triple bottom line approach to community outcomes. These include:• building Queensland’s economy;• strengthening Queensland communities; and• protecting Queensland’s environment.QFRS contributes directly and indirectly to whole-of-government priorities through:• employing over 2,000 permanent and 2,000 auxiliary firefighters/staff, andsupporting 35,000 volunteer firefighters;• building capabilities through learning and development, using innovationand state of the art technology;• providing planning advice in growth areas and assisting with buildingfire safety;• improving service delivery to communities, protecting our children andenhancing community safety; and• protecting the environment for a sustainable future.Chapter 1Foundations of Queensland Fire and Rescue 11

Chapter 1Interstate Mutual Assistance. State borders with New South Wales, Northern Territoryand South Australia means that fire and rescue crews deploy interstate, to support arange of tasks from relatively straight forward to tackling major fires before they crossinto Queensland. Formal arrangements through a Memorandum of Understanding, allowemergency services from both states to operate outside their own state as required.Climate. Lying between the latitudes of 10 degrees south and 29 degrees south,Queensland experiences both tropical and subtropical climatic conditions. Summertemperatures are high, with average January maxima ranging from 28C on the coast to37C in the interior. Winters are mild and sunny, with July maxima from 20C in the southto 26C in the north. The interior experiences the most prolonged summer heat, whilethe coast experiences more humid conditions during this time. The existing climate is achallenging operating environment for both urban and rural firefighters.Coastal Development. Queensland includes 7,400 kilometres of coastline. The vastmajority of the population is located on the eastern coastline. These areas are serviced byfull-time, auxiliary firefighters and volunteer brigades. Most inland areas are serviced byauxiliary firefighters or volunteer brigades.Foundations of Queensland Fire and Rescue 13

Chapter 1Hierarchy of DocumentsIt is intended that this strategic level doctrine will become the most considered andenduring general information document within the QFRS. That, in the context of otherpolicy, strategic documents and legislative procedure, the Operations Doctrine will bea central focus and provide members with a basis for the nature and future of our corebusiness.LegislationCodes of PracticePolicyProceduresGuidelinesCore DeliveryModelNon-Emergency Tasks7 Urban & RuralRegions support all FireStations & BrigadesEmergency TasksTotal StationWorkload(TSWL)Rural FireBrigade Manual(RFBM)AreaReferenceManual (ARM)IncidentManagementSystem (IMS)Incident ActionGuide(IAG)IncidentDirective(INCDIR)AdministrationReference Guide(ARG)FireCommunicationsCentresReference Manual(FCCRM)CommunitySafety OperationsReference Guide(CSORG)Incident Forms&ToolsFieldIncidentGuide (FIG)FireCommunicationCentres Directives(FCCDs)Figure 1-1: Hierarchy of Documents14 Foundations of Queensland Fire and Rescue

The strategic planning hierarchy is formalised at various levels, into strategic andoperational plans as shown in Figure 1-2 below.Integrated ActionsThe document hierarchy complements planning frameworks (regional functional plans,rural and urban operational plans, station plans) and existing reporting mechanisms, toensure there is logic and consistency in how QFRS undertakes its responsibilities to, andon behalf of the State Government.Chapter 1DES Strategic PlanQFRS Business PlanQFRS PolicyRural OperationsOperational & BusinessPlansA - Operations ManagementB - Community Safety OperationsC - Professional DevelopmentD - Operations Business ManagementUrban OperationsOperational & BusinessPlans17 AreasBrigadesFigure 1-2: Hierarchy of Strategic PlanningFoundations of Queensland Fire and Rescue 15

Chapter 1Strategic Planning. Since 1999 QFRSstrategic planning has adopted a balancedscorecard approach to outcome reporting.Planning cycles involve a four yearcoordinated planning horizon within theDepartment of Emergency Services. This islinked to a ten year asset management andbusiness framework timeline to coordinateinfrastructure development across theDepartment.Reporting to Government. QFRS reports toState Government through the DES. Thistakes the form of:• Annual Report through DES;• Estimate Committee hearings;• Annual Financial Auditing; and• Responses to the Ombudsmanand judicial reviews.16 Foundations of Queensland Fire and Rescue

Strategic Philosophy of Queensland Fire and Rescue ServiceThere are underlying philosophies that guide the everyday actions of commanders,fire and rescue personnel and staff. These are explained in this section.Command, Leadership and ManagementThe Commissioner QFRS has a personal expectation that all members will understandtheir responsibilities as leaders in the community. Firefighters need to take commandand lead, understand their obligation to restore order, bring situations under control,save lives, property and the environment. When members of the public see QFRSfirefighters in uniform, they expect clear direction and an ability to take control andprovide comprehensive professional advice.Chapter 1QFRS firefighters are committed to managing incidents to the highest standards ofoperational capability and safety. This is continually enhanced by training and learningfrom individual or shared experiences to overcome the physical and mental challenges ofthe many emergency incidents.QFRS has a long tradition of being a disciplined, professional team, with a structuredcommand system in place. This command arrangement is important during times ofuncertainty and assists QFRS to relate to other structured organisations such as theQueensland Police Service (QPS). In addition, it gives the community confidence andreassurance that normality will be restored.Primacy of SafetyQFRS’s core service delivery is built upon providing services to enhance community safetywhilst at the same time ensuring the safety of firefighters. Integral to the Command,Leadership and Management philosophy is ensuring health, safety and welfare. Byits very nature, the fire and rescue environment is characterized by many variables. Anumber of these risks are foreseeable prior to arrival at any given emergency incident,many can only be recognised on-scene, or will emerge on scene. QFRS is committed tothe mission of “Zero Harm – all injuries are preventable” which seeks to ensure that allfirefighters return home at the end of each shift in the same condition that they started.The combination of systems for research, information and analysis, risk modification,readiness, response and recovery enable personnel to proactively and reactively managerisk. These systems are being continuously improved by the lessons learned fromemergency incidents.The Commissioner acknowledges the importance of safety as a prime driver for settingtraining and workplace standards. Further discussion on the primacy of safety is found inSection 3 on Risk Modification.Foundations of Queensland Fire and Rescue 17

Key Result AreasStrategically the QFRS is seeking to achieve the following:Chapter 1• Strengthen community safety, prevention capability and resilience through welldevelopedinitiatives that meet the needs of the broad community and of targetedkey stakeholders and ‘at risk’ and priority groups.These initiatives are aimed at an attitude changein the community that will result in an increase inthe level of fire safety knowledge, preventionand awareness. QFRS initiatives are informed bycontemporary research to ensure improved levelsof fire and general safety behaviour in thecommunity and a reduction of the unintendedconsequence of fire and other emergencies onthe community. This includes significant activityin the area of Building Fire Safety and the reduction of false alarms.• Enhance operational service delivery by applying models that will safely deliveradequate and flexible services to meet current and emerging risks within thestrategic, tactical and multi-agency emergency management context. Theperformance of exercises to assess capability and post-incident analysis to identifylearnings, will identify strengths and improvements for ensuring that servicedelivery meets the needs of the Queensland community.• Develop and support our staff and volunteer workforce to ensure a knowledgeableand skilful workforce that capably undertakes its responsibilities with prideand operational excellence, so thatservices can be delivered safely andwith sustainability. QFRS will accomplishthis through sound managementstructures that place a strong focus onleadership and the provision oftraining and professional development toprovide quality services to Queenslandcommunities.• Build organisational capability through continuous business improvement byaligning planned strategies that support the deployment of human, physical,technological and intellectual resources including the management of risk,to deliver sustainable performance outcomes, consistent with “best-in-class”organisations.18 Foundations of Queensland Fire and Rescue

Challenges Facing Queensland Fire and Rescue ServiceQFRS is not alone in facing many challenges but with these comes the opportunity toexplore a range of service delivery options that not only engage a whole of governmentapproach but broaden the scope of response and harness the expertise of individualorganisations.Community Risk Reduction. Perhaps the greatest single challenge is the need to promotea shared responsibility between individuals, the community and emergency services.QFRS will never have sufficient resources to meet all demands placed on it, or expectedof it during major emergencies. When a bushfire threatens a community there is a hardchoice by the firefighters on-site to save what property they can with the resourcesavailable, should the community’s measures to protect their individual property beoverwhelmed. Industry has a responsibility to take appropriate measures to avoidaccidents such as hazardous chemical spills. Reducing the risk of incidents occurringremains our greatest challenge.Chapter 1iZone. As urban growth continues particularly in south-eastern Queensland, the iZonecontinues to expand. This has been recognised internationally as the area of greatestrisk for many communities. Closer working relationships and joint training and planningbetween urban and rural firefighters and local government are required. QFRS is spendingsignificant resources identifying the iZone areas and directing and educating bothfirefighters and local residents to take increased measures to reduce the likelihood ofloss of life and property.Joint Operations. Few emergency responses require only a single service approach, thedemand is increasing for joint operations under a unified command structure betweenQFRS, QPS, other emergency services, Local Authorities and land management agencies.Planning needs to be coordinated, capabilities developed and understood and controlarrangements must be clear and robust. For more protracted incidents, interstate supportneeds to be considered and accepted.Foundations of Queensland Fire and Rescue 19

Climate Change. It is expected climate change will lead to increased mediantemperatures during fire seasons, reduced water availability and drier conditionsleading to a larger number of more intense fires over extended periods. Warmer oceantemperatures may generate more extreme events such as cyclones leading to increasedcoastal inundation, property damage and rescue demands.Chapter 1Degraded Environment. Indications are that pollution will continue to impact on ourenvironment. This will heighten concerns over hazardous chemicals. State populationincreases will place continued pressure on these global influences and together withclimate change, are likely to become formidable issues in future years.Security Threats. The increased security risk and threat of terrorism has meant thatQFRS needs to prepare for a wider range of emergency responses around hazardoussubstances, multiple incidents and politically motivated violence. While overallresponsibility for these incidents remains with the QPS, the expectations on QFRS are forgreater planning, capability and involvement.20 Foundations of Queensland Fire and Rescue

Photo courtesy Townsville BulletinChapter 1Foundations of Queensland Fire and Rescue 21

Chapter 2Queensland Fire and Rescue Service Today – Our CapabilitiesThis chapter describes the unique capabilities of QFRS, methods of service delivery andengagement with other agencies.QFRS provides three levels of protection to the people of Queensland across a wide rangeof threats. The three levels of protection are:• Identifying risk and reducing the likelihood of emergencies occurring.Although QFRS cannot prevent all emergencies, through sharing knowledge andunderstanding with the public, the number and impact of emergencies can bereduced.Chapter 2• Providing confidence, peace of mind and reassurance of a standing capability 24hours a day, every day of the year. The provision of this level of confidence cannotbe formally valued but it is a formidable service to the community.• Responding to emergencies when they occur. Large or small, life threatening orproperty threatening, fire, natural disasters or hazardous chemicals, QFRS willrespond when requested in a timely and professional manner.The range of capabilities is detailed later in this chapter. Some are physical, some lesstangible. All contribute to a level of capability that protects Queenslanders wherever theylive.The first fire station in Brisbanewas in a factory buildingon Gaol Hill. The buildingwas located on a hill on thepresent site of the G.P.O. inQueen Street, and had servedas a female prison and a courthouse. It was converted to anengine room in 1862, and abell tower was erected in 1863.22 Foundations of Queensland Fire and Rescue

Our HistoryQFRS is the oldest formal volunteer brigade in Australia undertaking its first operationin October 1860, after a fire destroyed a Brisbane cabinet making workshop and wasonly contained as a result of a bucket brigade of police and volunteer helpers. Initialbrigades were formed and then dissolved, due to poor resourcing or effectiveness andthis occurred again after the great fire of Brisbane in 1864 when over 50 buildings weredestroyed.Chapter 2The first piece of formal legislation for rural fires was the Act to Prevent the CarelessUse of Fire 1865, and for urban fires the Fire Brigades Act 1876. The first death of afirefighter on duty occurred in 1877. The first full-time firemen were employed in 1889 andthey received a petrol powered fire appliance in 1905. Following disastrous fires in centraland southern Queensland in the 1920s, a body tocoordinate, oversee and administer rural fire controlin Queensland was introduced. The Rural FiresBoard and Rural Fires Act 1927 were subsequentlypromulgated and 18 fire wardens were appointedin 1928. During the Great Depression in the 1930’seconomic constraints limited the effectiveness of theboard but after World War II the Rural Fires Act 1946The first full-time firemen wereemployed in 1889 forming ‘apermanent Brigade’. The newHeadquarters Station was a brickbuilding in Ann Street.was passed. By 1948, 46 Fire Warden Districts had been declared and in the 1951/52financial year, the number of brigades rose from 49 to 159. Provision was now in place toregister Bush Fire Brigades. The first was Glasshouse Mountain in 1948 and the 1,000thwas Kumbia Bush Fire Brigade in 1970.Foundations of Queensland Fire and Rescue 23

District offices were opened in 1950 with Rockhampton being the first. Governance, shiftand organisational arrangements steadily improved although firefighter deaths continuedand the public also suffered from major fire events. This included the Whiskey Au-Go-Go fire in Brisbane that claimed 15 lives in 1973 and a further 15 lives were lost in theChilders backpacker fire in 2000.These events led to significant shifts in legislation, performance and procedure. The firstcomprehensive legislation covering fire safety of buildings was subsequently introducedin 1976. This was followed by the introduction of ‘Fire Safety Officers’, who worked withindustry to ensure that new buildings met the required legislative requirements. However,services were still provided through 81 ‘Fire Boards’ across the state.Chapter 2The Queensland Fire Service and the Rural Fires Council were formed in 1990 to replacethe 81 Fire Boards and the Rural Fires Board. The Service was restructured into theQueensland Fire and Rescue Authority in 1997. It evolved into the Queensland Fire andRescue Service in 2001.The first full-time female firefighters were employed in 1995. The QFRS Fire and RescueAcademy was opened in 2001 as a world-class training facility and is now known as theQueensland Combined Emergency Service Academy (QCESA). In 2006 a new model forRural Operations was established that provided an improved workload distribution andan enhanced regional structure that mirrored the seven QFRS Urban Operations Regions.This preserved the culture of rural volunteering and ensured an integrated approach to alloperations and community safety.The Bureau of Emergency Services was formed in 1989 and grew into QueenslandEmergency Services in 1993 and then became the Department of Emergency Services in1996. Today the Director- General of the Department of Emergency Services is also theChief Executive Officer (CEO) of the QFRS.24 Foundations of Queensland Fire and Rescue

Tradition and Enduring FeaturesFirefighters are amongst the most respected of the professions in our community. Theyconsistently feature strongly in public surveys. This may be because they are seen to bewell trained and capable, prepared to respond at any time, are obliging, professionaland serving their community. It may be because they venture into dangerous situationswhen others are at risk. It may be because they are viewed as members of a disciplined,uniformed workforce who arrive in an emergency to help, not judge or criticise. QFRSfirefighters are a blend of urban firefighters carrying forward fire service traditionsdrawn from the Artillery Corps, and uniquely Australian volunteer firefighters, reflectingsomething of the irreverent ‘digger’ during the World Wars, who cared less for someaspects of procedure but were professional and courageous in doing the job they wereassigned to do.CultureEvery organisation has some elements of character andspecific values that generate a unique culture. Anappreciation of an organisation’s culture assists inunderstanding goals and methodologies. QFRS, likemany fire services, is traditional with well-establishedroutines. Teamwork is well defined at the work shift leveland a strong awareness of belonging exists across theentire organisation. Service to the community is theirreason for existence. Firefighters know their job and therisks involved and are professional in their outlook andperformance of duty. Firefighters in rural fire brigadesare volunteers supported by a small cadre of paidstaff. They are proud of their enduring volunteer spiritand undertake their firefighting work unmotivated byremuneration. Continuous improvement is a motivator andhas permeated the QFRS culture. Individuals are proud oftheir performance as a crew and their station’s capability,wanting to see progress, innovation and development.Command, leadership and management (CLM) areenduring characteristics that have always been part ofQFRS culture.Relationships based on trust, where leaders demonstraterespect, tolerance and humility are commonplace. QFRSpersonnel have also shown flexibility and a commitmentto change, having learnt from history and more recentevents.The BrisbaneVolunteer FireCompany held it’sfirst meeting on 23November 1860to discuss variousmatters relating totheir operation. The36 members decidedthat the uniformshould be made fromwhite flannel withred facings, a blackbelt and a whiteglazed hat.Unfortunately thisenthusiasm soonwaned and withoutcommunity supportthe Volunteer FireCompany wasdissolved on1 July 1861.Chapter 2Foundations of Queensland Fire and Rescue 25

Relationships and ResponsibilitiesApproaches and ResponsibilitiesThroughout the evolution of QFRS, there has been a strong sense of communityinvolvement and engagement. Today this is manifested in brigades and stationsbeing located within local communities. QFRS firefighters generally live and work inthe communities they serve. They visit local schools, conduct local safety reviews andinspect local buildings for fire safety. In rural towns the local fire brigade is often oneof the central structures, binding community awareness and needs, and contributingto the ongoing viability of that settlement. QFRS firefighters consider themselves verymuch part of the community, whether volunteer, auxiliary or full-time. They exist toprotect the community.Chapter 2QFRS Contribution to QueenslandThe QFRS uses its collective knowledge to recommend legislative improvementsthat contribute to a reduction in the number and seriousness of incidents. The QFRSalso plays a role in the enforcement of appropriate safety and bushfire mitigationlegislation. This is achieved through undertaking building plan assessment and ininspecting existing buildings to ensure initial and ongoing compliance with legislation.• The existence of the QFRS is effectively an insurance policy for the Queenslandeconomy, reassuring investment and giving confidence to residents and visitors.In turn the QFRS contributes to local economies through purchasing goods andservices and where paid positions exist, provides jobs and careers.• The existence of the QFRS strengthens local communities.• The existence of the QFRS protects Queensland’s environment. Through its firewardens in rural areas, QFRS conducts prescribed burning and manages fire toimprove agricultural outcomes, such as sugar production and grazing as well asusing fire to reduce fuel loads.In summary, these approaches improve the awareness and encourage the resilienceand survivability of local residents and businesses.• It meets the community expectations of having an element of QFRS in localcommunities.• QFRS members being drawn from local communities.• QFRS making communities aware of the likelihood and consequence ofemergency events occurring – and how they can be reduced when required.• QFRS responding and assisting in times of adversity as quickly as it is safe to doso, to save lives and minimise property loss.26 Foundations of Queensland Fire and Rescue

Queensland Fire and Rescue Service OrganisationOrganisation and ResourcesThe QFRS has a formidable array of resources available to be deployed across the state.These include:• 2,000 permanent and 2,000 casual staff;• 35,000 volunteers, including 2,193 fire wardens;• 239 urban stations operating 479 urban fire appliances; and• 1,519 rural brigades operating 953 rural fire appliances.These resources operate under a decentralised command structure, providing capabilityand flexibility in response to local conditions and local communities. The area andregional approach provide a level of local knowledge and proximity to the client that isimportant across a state of such significant geographic size.The QFRS manages these resources within the departmental framework through theCommissioner, Deputy Commissioner and Assistant Commissioners. In addition, theRural Fire Council is an Advisory Council to the Minister and to QFRS in regard to fires inrural areas and the operation of rural fire brigades, while the Emergency Services AdvisoryCouncil (ESAC) advises the Minister on all matters to do with Emergency Services.Chapter 2Foundations of Queensland Fire and Rescue 27

Chapter 2Figure 2-1: Seven Regions of Urban and Rural OperationsUrban OperationsUrban fire operations are centred on protection of life, property and the environment,from a broad range of hazards. While fire remains a major source of risk, it is one of manypotential emergencies. QFRS urban service delivery is through seven regions. Each regionis led and managed by an Assistant Commissioner. Within each region are a number of‘areas’; each area has an Area Director. The seven regions are illustrated in Figure 2-1above:• Far Northern Region including Torres Strait communities and the Gulf of Carpentaria;• Northern Region including from the coastal Hinchinbrook Shire west to the NorthernTerritory border;• Central Region including Whitsunday Shire to the north, Miriamvale to the south andwest to the South Australian border;• North Coast Region including Bundaberg, Hervey Bay and the Sunshine Coast;• South Western Region including Toowoomba, west to the South Australian borderand south to the border of New South Wales;• South Eastern Region Logan City, Ipswich and the Gold Coast; and• Brisbane Region Brisbane City, Redlands, Pine and Caboolture Shires.28 Foundations of Queensland Fire and Rescue

Rural OperationsRural Operations are also centred on protection of life and property, being mindful of theprotection of environmental and income producing assets. The use of fire as an efficientand effective hazard reduction tool is well established, as is using fire for weed control,to encourage improved pasture and assist in farm management. The ‘Permit to Light Fire’system, administered through the volunteer Fire Warden network, has proved a highlyeffective method of managing fire responsibly.Rural Operations actively preserves the culture of rural volunteering and ensures anintegrated approach to operations and community safety. The Rural Operations structureis aligned to QFRS Urban Operations Regions. Delivery of services is through the sameseven regions depicted in Figure 2-1, but includes all areas not covered by urban stations.Each region has a Regional Manager Rural Operations (RMRO). Within each region, thedistricts have been renamed so there are a number of areas, each with an Area DirectorRural Operations (ADRO). The totality of Rural Operations is led and managed by theAssistant Commissioner Rural Operations.Rural fire brigades are currently classified as Special, iZone, Village, Rural and PrimaryProducer, based on the risks in their area. Each classification represents a differentcapability:Chapter 2Primary Producer Brigade: A Rural Fire Service brigade consisting of owner/occupiersengaged in primary production who share a responsibility for the management of fireusing property based equipment. The brigade operates with limited contact with orsupport from QFRS.Rural Brigade: The brigade area is predominantly rural producing land with possiblysome low-density rural residential development. The risk is mainly from bushand grass fires, with a high level of utilisation of property-based equipment forfire management. Contains little or no government infrastructure and the communitycentre, if it exists within the brigade area, has less than 10 buildings.Village Brigade: The brigade area has a community centre with greater than 10buildings and other Government Infrastructure (e.g., school, Council depots,recycling centres, etc). Often located in remote areas with little or no assistanceavailable from other rural fire, urban or auxiliary brigades.iZone Brigade: A high-density rural residential brigade, usually with a well-developedcommercial centre. The brigade may contain significant areas of bushland but thepredominant risk is to life, property and infrastructure. Activities of the brigade areprincipally within the operational policy and procedures of QFRSSpecific Service Delivery Brigade: A brigade that operates with a service deliverymodel specific to individual community or service requirements. Examples of thistype of brigade includes indigenous community brigades, combined auxiliary/ruralbrigades, mining brigades.Foundations of Queensland Fire and Rescue 29

Figure 2-2: Structure ofOperational CommandUrban OperationsRural OperationsChapter 2Assistant Commissioner(Region)Operational Command StructureAssistant Commissioner(Rural Operations)Chief SuperintendantSuperintendantInspectorStation OfficerLeading FirefighterQFRS utilises a command structure with origins fromthe military. While there is strong tradition aroundthis chain of command, it also serves as an effectiveoperational structure for the varying environments ofboth Urban and Rural Operations.Chief SuperintendantSuperintendantInspectorArea TrainingSupport OfficerSenior FirefighterRural Fire ServiceBrigade TrainingSupport OfficerAuxiliary CaptainAuxiliary LieutenantBrigade First OfficerBrigade OfficerCrew Leader30 Foundations of Queensland Fire and Rescue

Nature of QFRS TodayQFRS is a modern fire and rescue organisation that is focused on continuousimprovement and enhanced service delivery. In the next section, the unique QFRScapabilities are identified. In this section the major approaches and elements thatcontribute to what is the QFRS today are acknowledged.Combined Capability. The combination of full-time, auxiliary and volunteer firefightersco-existing in the one service provides a depth and strength that many fire services inAustralia cannot match. The capacity to support and escalate responses within the oneService provides Queensland with impressive diversity and surge capacity in firefightercapability. Operating within the DES framework with other emergency services furthercomplements this.Working with the Community to Build Capacity and Confidence. The success of QFRSis measured not by the number of incidents attended but by the reduction in losses,by an increase in those seeking to prevent emergencies developing and in increasedcommunity safety. QFRS cannot achieve this alone. Much more can be done by localresidents, local industries and local government, to identify risks and take actions tominimise or manage them. Through this shared knowledge, the local community will gainconfidence and capability. QFRS is making available an increasing range of informationand advice on its website and in other publications. A range of community safetyprograms are prepared and conducted by QFRS on:• smoke alarms;• home safety;• improvements in design and construction of buildings including development offire evacuation plans;• workplace safety;• leisure activities and equipment including backpacking, camping, BBQs andcandles;• schools;• Roads, Attitudes and Action Planning (RAAP);• bushfire prepared communities;• advice on development in bushfire prone areas;• land management around local communities; and• ‘Safehome’ inspections.Chapter 2Foundations of Queensland Fire and Rescue 31

Range of Operational Demands. QFRS has become increasingly flexible in its operationalresponse capability. While urban and rural fires remain its core capability, this experiencehas been translated into many other emergency situations such as road crashes, highangle and confined space rescues, hazardous chemical response, incident managementand activity planning.Chapter 2Interstate and Overseas Aid. QFRS has deployed strike teams to the Australian CapitalTerritory, New South Wales and Victoria when requested by interstate agencies. Theseself-sufficient teams have provided much needed support to local fire crews. QFRSadvisory teams have travelled overseas to review and comment on major environmentalchallenges, such as the smoke haze over Indonesia during annual burning season and toadvise on emergency management after the tsunami of December 2004.Commercial Training. In addition to internal training for fire personnel, QFRS providestraining to industry on a commercial basis. This proactive approach provides industrywith the skills and tools to mitigate the risks and cope with emergencies untilprofessional emergency services arrive. This is managed by the Commercial DevelopmentUnit (CDU) which delivers its services through the Training and Emergency Management(TEM) group which has offices in Brisbane, Rockhampton, Cairns and Mt Isa. Theseunits assist Australian and international organisations to improve their standards of firesafety and emergency management. Training is provided across a range of competenciesincluding:• use of fire extinguishers;• building Fire Wardens training;• AIIMS incident management;• wearing and use of breathing apparatus;• bushfire management training;• confined space training;• fire team training;• healthcare fire training;• maritime fire training;• petroleum industry fire team training;• mining industry fire team training;• fire and emergency consultancy;• evacuation plans and emergency procedures manuals; and• technical rescue.32 Foundations of Queensland Fire and Rescue

Commercial Advice. Specialist services are provided to a variety of industry, local andother state governments, such as:• Local government is provided with advice for development of fire managementplans for council owned or managed land and reviews and advice on developer’splans for developments in the iZone.• Services are provided to mines for provision of emergency services, inspection offixed and mobile fire suppression systems and specialist training.• QFRS also provides specialist training for interstate and international fire servicesat the state-of-the-art QCESA. This service shares QFRS expertise with industrycolleagues and generates revenue that contributes to the core funding of theservice. It builds the DES and QFRS profile both nationally and internationally.• The CDU manages the portfolios of outdoor advertising and mobile phone towerson departmental property. This is another resource that adds significantly toQFRS income.Chapter 2Capabilities of Our People and OrganisationQFRS firefighters are acknowledged for their:• willingness to assist;• hands-on practical capabilities;• sense of community;• calmness under pressure;• strength, confidence and physicalendurance;• leadership, initiative and teamwork; and• mutual respect between urban and ruraloperations and for other emergencyservices.These attributes contribute to the favourablereputation of the QFRS but more importantlymean that QFRS can achieve its Statement ofPurpose. Staff also need to adjust to change,be prepared to accept diversity and generatea passion to make a difference.Foundations of Queensland Fire and Rescue 33

Value of Volunteer Firefighters. Rural volunteers provide a depth and capacity that cannotbe achieved through the number of paid firefighters. Apart from the emergency servicesthat they provide for their local communities, volunteers are part of the very fabric ofmany rural towns and localities. To maintain competent, skilled rural volunteers theService needs to commit significant resources to their training and development andpromote volunteerism to ensure volunteers remain.Chapter 2Command, Leadership, Management. QFRS has maintained ongoing personaldevelopment of command, leadership and management. Recently greater resourceshave been directed to leadership training and the role of command has been reinforced.Command is an important element of QFRS operations and greater emphasis of its placein operations is being highlighted.Equipment Management. QFRS manages a significant equipment inventory andvehicle fleet. Operations Engineering Services Unit (OESU) oversees the managementof equipment, communications, and engineering services, undertakes researchand development and plans future procurement. With increasing demands andsophistication, equipment management is a complex and demanding area of business.Property and Fleet Management. QFRS has a large number of buildings, facilities andland holdings. In addition, the service purchases and leases extensive vehicle fleets.These are managed together with the DES, to meet the requirements of State Governmentand the needs of the service.Role of Fire Wardens and Permits to Burn. Burning for land management and agriculturalpurposes has been a long-standing practice across much of Queensland. QFRS local firewardens facilitate this through the ‘permit to burn’ process. They use their experienceand judgement to make important decisions regarding community safety. They areinherently an important part of the community fire practice and are recognised as animportant coordinating element of Queensland’s fire and rescue capability.Provision of Training Facilities. QFRS has made a significant investment in trainingfacilities. While this is most evident in QCESA other static and mobile training facilitiesacross the state provide opportunities for QFRS firefighters to maintain skills and learnnew competencies.34 Foundations of Queensland Fire and Rescue

Research. QFRS is a member of the Bushfire Cooperative Research Centre (CRC) andactively supports research for operational benefit. In addition, it is undertaking researchwith the Australian Research Council on behalf of the Australasian Fire and EmergencyService Authorities Council (AFAC) to improve industry understanding and capability.Continuous Business Improvement. QFRS has an approach that encourages continuousimprovement. While this applies to all that QFRS does, business improvement is linked tothe Australian Business Excellence Framework (ABEF) and adopting a Balanced Scorecardapproach to measuring outputs. This has also included sound strategic planning,utilising business improvement models such as process management and the StatewideIntegrated Operational Planning Process (SIOPP) and having an ongoing program ofpolicy review.Value for Money. QFRS is a major government enterprise with a budget in excess of$400M. The capacity it provides over 24 hours a day, 7 days a week across full-time,auxiliary and volunteer workforces is excellent value for money. This insurance policyprovides Queenslanders with constant fire and rescue coverage. For the capital investedin infrastructure and public buildings, housing and assets, apart from the lives of all wholive in Queensland, the QFRS budget is a small premium for impressive policy coverage.Chapter 2Foundations of Queensland Fire and Rescue 35

Suite of Unique CapabilitiesFirefighters. The greatest single strength and capability of the QFRS is individualfirefighters that make up a fire crew. These teams of firefighters are the capability of theservice and are the people that extinguish the fires, conduct the rescue, educate thechildren, contain the hazardous substance, advise on land management and undertakesafety inspections. Their commitment to the service reflects their sense of duty and pridein their job.Chapter 2Training. The QFRS has adopted a holistic approach to training that combines training inphysical skills with overall professional development. The QFRS places emphasis on livefire training to teach firefighting techniques under realistic conditions. Training is a vitalinvestment for the future capability of QFRS. For each member of the service it is a careerlongcontinuum.Equipment. QFRS has a unique suite of equipment from personal protective equipmentto highly sophisticated chemical agent detectors. Firefighting equipment, includingpumps, hoses, nozzles and rescue equipment, are standard on most QRFS appliances.Specialised vehicles have equipment for hazardous chemical response. Rural vehicleshave off-road capability and specialised foam concentrates to assist in bushfires. Manyurban firefighting vehicles have specialised road crash rescue (RCR) equipment.36 Foundations of Queensland Fire and Rescue

Communications. QFRS has a capable, mobile, communications network, independent ofthe Public Switch Telephone Network (PSTN) that ensures effective response throughoutQueensland. Every call for assistance is answered in one of the seven Fire CommunicationCentres (FireComs) throughout the state or through local alarms in rural areas.Communications centres are equipped with computer aided dispatch systems (CAD) thatrecord and assist operators in identifying the closest appliance and crew to achieve thefastest response.Chapter 2Systems. QFRS has a matrix of systems related to command, leadership, education andsafety, operational response, business improvement, equipment management, researchand innovation as well as corporate strategy. These strategic systems can be modifiedand adapted to meet changing conditions. In times of uncertainty or in emergencies,those systems are available to the public to provide reassurance, certainty andinformation.Operational Procedures. Through experience, research, training and practice, operationalprocedures have evolved, continue to be refined and are subsequently documented.While this knowledge is now being captured, it is under constant review, providing a highlevel of detail regarding what needs to be done and how it should be done to achievethe best outcome. QFRS Operations Doctrine is the latest version of its documentedoperational procedures. While the content is authoritative, it requires judgement in itsapplication.Foundations of Queensland Fire and Rescue 37

Logistic Support. QFRS maintains an impressive logistic capacity. It has significantstores of protective equipment, specialised equipment and deployable infrastructure.This logistic capability has been exercised when QFRS contingents have been deployedinterstate or overseas. It allows the contingent to be fully self-contained, thereby notbeing a burden to the agency or local communities exposed to the emergency.Chapter 2Operational Command Structure. QFRS has a command structure that allows tasking ofindividuals or groups and responsibilities to be identified. It can be applied across theboard, dovetailing into the command structure (QFRS Incident Management System) usedby all personnel. This is based on the Australasian Inter-Service Incident ManagementSystem (AIIMS).Australasian Inter-Service Incident Management System. AIIMS was introduced toAustralia in the 1980s and has been nationally adopted as the fire service incidentmanagement system. QFRS has encouraged other agencies and the divisions of DESto use AIIMS as the standard system for all Queensland incident management. It isdiscussed in detail in Chapter 4.38 Foundations of Queensland Fire and Rescue

Risk Reduction OutcomesWhile incidents will inevitably occur, the intent of the QFRS is to reduce these to thelowest possible number and impact through community and stakeholder education tobuild resilience and capacity. For those incidents that cannot be avoided, the QFRS willrespond to minimise the impact to the individual and the community.Operational Response. With over 60,000 responses a year, QFRS maintains an impressiveresponse capability to all emergencies. It is the capacity the community expect. Thisoperational capacity includes responding to:• fires in an urban environment;• fires in a rural environment;• rescue – involving vertical rescue, trench rescue, confined space rescue; urbansearch and rescue; and rescue from swift water and floods;• road crash rescue;• hazardous material incidents; and• fire investigation.Joint Approach. Few incidents in the 21st century, to which QFRS responds, will besingle agency responses. Increasingly, due to community expectations and the greatercomplexities around incidents, QFRS will respond with one or more emergency services,and in many cases, with the QPS. This joint approach to achieving a combined responsebecomes a powerful community capability.Chapter 2Whatever the task, large or small, life or property threatening, reducing risk or conductingrescue, there are skills, procedures, equipment and capabilities that are blended from anumber of resources to provide the capacity required.Foundations of Queensland Fire and Rescue 39

Non-Statutory OrganisationsNon-statutory organisations are an integral element of QFRS. Some of the non-statutoryorganisations that support QFRS are listed as follows.Unions. Urban firefighting is a strong industrial environment. The United FirefightersUnion (UFU) plays a role in reviewing standards and safe practices. The UFU QueenslandBranch, together with other unions representing staff of other trades, support and whennecessary, represent full-time firefighters. An ongoing relationship between managementand the unions is essential to the effective workings of QFRS.Chapter 2Auxiliary Firefighters Association of Queensland. Auxiliary firefighters are an essentialelement of the QFRS operational arrangements. These part-time firefighters provide vitalservices in many towns where the employment of full-time firefighters cannot be justifiedbut rural coverage is inadequate. The Association represents these firefighters andan ongoing relationship between management and the Association is essential to theeffective workings of urban operations.Rural Fire Brigades Association of Queensland (RFBAQ). Rural firefighting is a strongvolunteer environment. As in other states, the Rural Fire Brigades of QFRS RuralOperations evolved from members of local communities being prepared to gather,when required, to help themselves or others. The RFBAQ supports and when necessaryrepresents those volunteers. An ongoing relationship between management and theAssociation is essential to the effective workings of Rural Operations.Senior Officers Association. One of the three main unions, (the other two are the UFUand the Queensland Public Services Union (QPSU)) plus four minor ones, representingfirefighters and other staff’s interests on aspects of working conditions, remuneration,disputation and settlement procedures, occupational health and safety.40 Foundations of Queensland Fire and Rescue

Fire Protection Association of Australia (FPAA) Queensland Branch. QFRS has anongoing relationship with a number of associations including the National FireIndustry Association (Queensland Branch) (NFIA (Q)), Fire Protection Industry Board ofQueensland (FPIBQ) and the Society of Fire Protection Engineers (SOFPE) through FireAwareness Week and the promoting of fire safety and awareness.Commercial Sponsorships and Partnerships. The location of the training facility at WhyteIsland has meant that Caltex has become an important partner with QFRS. QFRS alsouses sponsorships to promote specific campaigns or events. This may take the form of aninsurance company supporting an initiative such as the placement of smoke alarms, orthe provision of a specific piece of lifesaving equipment. Sponsorship provides a targetedcapacity to fund an explicit project or objective and affords further linkages into thecommunity for QFRS.Retired Firefighters Association of Queensland. The Association is a non-profitorganisation managed by retired firefighters for retired firefighters, particularly to providesupport and comradeship during times of sickness and bereavement.Chapter 2Foundations of Queensland Fire and Rescue 41

Chapter 3Our Role in Identifying and Reducing Community RiskThe QFRS is positioned and prepared to deal with a broad range of risks affecting bothpublic and private property, life and land. This diversity is managed through the adoptionof a risk model drawn from national standards known as the 5R’s.The first three of the 5R’s are described in this chapter.The conventional paradigm of fire services has been response based yet this is an imagethat does not best serve the full range of QFRS capabilities. Firefighters are focussedon reducing the risk of avoidable fires and other emergencies and reducing the riskto firefighters who attend emergency incidents. This is achieved through widespreadrecognition and application of safety, preventative measures and mitigation strategiesthat minimise the likelihood and impact of emergencies and disasters and build capacitywithin communities to respond.While there is a place for controlled fire in the rural landscape, where it may lower thelevel of risk through reducing available fuel loads, unplanned fires can reflect a degree offailure in risk identification and treatment. Vehicle accidents requiring QFRS attendanceare a further concern to the Service. QFRS is exploring ways to reduce these and otheravoidable emergencies.Chapter 3The 5R’SRole of the 5R’s within QFRS. In 2003 the Council of Australian Governments (COAG)initiated a national Inquiry on Bushfire Mitigation and Management. One outcome of thereport was the establishment of the 5R’s, a risk management framework that at the timewas proposed for considering bushfires, but is applicable for all emergency management.QFRS is transitioning to the 5R’s approach. The existing national approach to emergencymanagement is structured around four phases. As illustrated in Figure 3-1, there is closealignment between the two emergency risk management approaches.Figure 3-1:Comparison of theexisting arrangementsand the 5R’sApproach.The significant differences are the inclusion of ‘research, information and analysis’ andthe adoption of the term ‘risk modification’ rather than ‘prevention’.42 Foundations of Queensland Fire and Rescue

Figure 3-2: The 5R’s Approach as a Continuous CycleResearchinformation &analysisRiskmodificationRecoveryResponseReadinessThe 5R’s Approach as a Continuous CycleWhile the community does not readily identify the individual phases, the 5R’s approachpresents a more holistic methodology to emergency management and emphasises thatresearch and information is critical to effective response and recovery. Furthermoreit is a continuous cycle, providing inputs and feedback to the other elements of theapproach, as illustrated in Figure 3-2. It also avoids the use of the term ‘prevention’, asthis may convey to the public the incorrect impression, that many emergencies suchas all bushfires and cyclones can be ‘prevented’. Each element of the 5R’s approach isdiscussed in further detail in subsequent paragraphs.Chapter 3Research Information and Analysis. This risk based approach to reducing loss andincreasing community safety will not happen through chance. It requires organisationalwill, the support and application of targeted research, the collection, sharing and analysisof information as well as quality data leading to informed decision making.Foundations of Queensland Fire and Rescue 43

Risk Modification. The use of risk modification instead of prevention is a deliberatechange in terminology. Despite the best efforts of personnel within fire and emergencyservices, fire cannot be prevented. As such the phrase ‘fire prevention’ may establishan expectation within the community that fires will not occur and individuals andcommunities have no responsibilities. This may create an attitude that is flawedand potentially dangerous. QFRS actively seeks to reduce avoidable fires through itscommunity safety programs and because of common language, does at times use theterm ‘fire prevention’ just as police use ‘crime prevention’. However, it is used in theknowledge that all fires cannot be prevented and reducing or modifying the risk is afar more accurate description of what is being undertaken. In addition, the term ‘fireprevention’ ignores the legitimate use of fire in rural landscapes where prescribedburning is deliberately used for hazard reduction.Readiness. Readiness is everything that can be done before an emergency occurs.This includes identification of risks, planning, preparedness (including training),capability development and preparation for response. Readiness is just as applicable tocommunities as it is to QFRS. The greater effort and resources applied in readiness, theless time and impact may be required in response.Chapter 3Response. Response is the time firefighters are actually responding to emergencies tonormalise a situation. Contrary to popular understanding, this is not the main role ofQFRS firefighters. It is the high profile, high risk function, but takes up less than five toten percent of their time.Recovery. QFRS is involved in recovery operations, particularly after events like cyclonesand flooding, however, community recovery after an emergency event is generally notthe prime function of QFRS. Involvement is restricted to support and not lead agency butQFRS undertakes an incident debrief at the recovery phase of an incident, which is anoverall assessment of the effectiveness of the operational response phase (including preincidentplanning). The operational findings and lessons will (where relevant) be used forany enhancement of firefighter safety, equipment, operational response, and communitysafety operations.44 Foundations of Queensland Fire and Rescue

Research, Information and AnalysisQFRS promotes innovation and review. The ongoing application of research is vital tothe future effectiveness of the QFRS and ongoing capability development. Closely linkedto research is the collection and sharing of information across regions and the state toanalyse trends and performance. The Operations Management Systems (OMS) assist indata collection so that performance can be monitored and reviewed.Australia, through the Commonwealth Scientific and Industrial Research Organisation(CSIRO) and a number of leading universities, has in the past undertaken world leadingresearch into fires, however this has been much less in recent years. In 2003 the BushfireCRC was established and QFRS, as a foundation member of the CRC, funds researchand provides in-kind support to ongoing research programs. While its current focus ison bushfires, it is envisaged the CRC will develop into a holistic fire research centre. It iscurrently studying fire issues that apply to both rural and urban environments, such asfire risk and impact in the iZone.Apart from this formal research initiative, QFRS has initiated other research programsthrough grants from the Australian Research Council (ARC), on specific issues such as ‘firerelated stressors in the workplace’. This research is being undertaken by the QueenslandUniversity of Technology (QUT).In addition to the CRC work, QFRS has established the first Total Cost of Fire (TCF) researchreport that will be used by AFAC to determine the TCF in Australia. From this research itis hoped to determine the true cost of fires i.e., the cost compared to the affect of theanticipation or risk modification costs.Chapter 3Foundations of Queensland Fire and Rescue 45

Risk ModificationRisk modification occurs at the strategic, operational and tactical levels and is relianton individuals taking reasonable steps to reduce the likelihood of fire, and industryinstalling a range of appropriate fire safety systems including fire detection alarms. Riskreduction is reliant on individuals and organisations taking reasonable steps to protectthemselves and their property.This strategic approach to identifying and managing risk is consistent with many otherbusinesses. For QFRS, risk modification includes undertaking land management andbuilding fire safety inspections to identify the risks in urban and rural areas, initiating riskreduction programs where appropriate and developing plans to reduce the risk shouldemergency response be required.Local government has a major role in the planning process for development applicationsin bushfire prone areas. Risks need to be identified and planning limitations orrequirements may be exercised to reduce the risk of loss of life, or destruction ofproperty. QFRS is committed to working closely with local government to ensure thatdecisions arrived at are balanced, appropriate and supported. Since the year 2000 QFRShas also formed strong partnership with various local governments to ensure compliancewith the newly established budget accommodation legislation.Chapter 3The South-East Queensland Fire and Bio-Diversity Consortium provides fire managementguidelines derived from ecological research. It gathers and disseminates informationon fire management practices that will support conservation of the regions’ biologicaldiversity. As a member of the consortium, together with a large number of localgovernments and Griffith University, QFRS seeks to engage with local government,researchers and communities to identify the most appropriate fire management regimesand best ways to minimise risk. Particularly important are the interface areas wherehousing meets bushland. The Tropical Savannas CRC provides similar guidance for thenorthern regions of the state.QFRS identifies key risks through regional functional plans and area operational plans.The combination of functional and area operational plans ensures a comprehensivematrix of common risk identification as a result of two separate approaches.Area operational plans are the tactical plans developed to mitigate operational risk. Theyare devolved into a number of station operational plans that are applied on the groundby responding fire crews. These local operational plans are developed using a standardtemplate and referred to as Local Action Plans (LAP’s).46 Foundations of Queensland Fire and Rescue

The diagram at Figure 3-3 identifies the continuous assessment of risk required byresponding crews on arrival at an incident. It is derived from the QFRS OperationsDoctrine.Figure 3-3: QFRS Risk Assessment ProcessINCIDENT RESPONSEDetermine objectives inrelation to situation andpersons at riskRe-assesstacticalprioritiesIdentify strategies andtactics to achieveobjectivesCan additionalcontrol measuresbe introduced?Are all Firefighters safe?Chapter 3Proceed with operationsand continouslyassess safetyINCIDENT RESOLVEDFoundations of Queensland Fire and Rescue 47

Chapter 3Community Safety and Education ProgramsQFRS partners with other emergency services, police and local communitygroups to provide a broad range of safety and education programs to mitigatethe risks and increase community readiness.• Roads, Attitudes and Action Planning (RAAP). 17-24 year old youth inQueensland account for 30% of all road fatalities despite making up only12% of the population. The RAAP program actively seeks to reduce thenumber of ‘young’ fatalities by providing novice and pre-licensed drivers,mainly year 12 students, with a practical, interactive insight into whathappens at a road accident rescue, the consequences and the effecton families. It provides participants with strategies to avoid potentiallydangerous situations. It is a state-wide initiative targeting novice and prelicenseddrivers, riders and passengers. Generally delivered by firefighters atschools, the program is structured to meet guidelines set by peak road safetyeducation bodies.• Fire Education (FireEd). FireEd is one of the longest standing and best knowncommunity partnership programs of QFRS. The program aims to educateprimary school children in the key aspects of fire safety and evacuationmeasures, including ‘stop, cover, drop and roll’ and identifying a homeevacuation route.• Community Fire Education. Presentations are delivered by local fire crews tolocal community groups, focusing on survival from a house fire in a domesticsituation.• Seniors Fire Education. Developed in conjunction with the RetiredFirefighters Association of Queensland, this program is delivered to seniorcitizens and acknowledges that they are one of the most domestic fire ‘atrisk’ groups in the community.• Bushfire Prepared Community (BPC). This program urges people living in thebush or where the bush meets the city to be aware of the risks of bushfireand the appropriate actions to take if one occurs. It highlights sharedresponsibility between QFRS, local government, communities and, mostimportantly, individuals. In major conflagrations or where there are multiplebushfires, QFRS cannot guarantee a fire fighting appliance to every residenceand the knowledge gained from this program becomes an important elementin bushfire survival.48 Foundations of Queensland Fire and Rescue

• Fight Fire Fascination (FFF). This program is designed to tackle fire play and fire setting bychildren. While many children may have some interest in fires, playing with matches andsubsequent fire setting is an unacceptable behaviour which, if identified early, is addressedby specially trained firefighters working with the young people and their families.• Winter Fire Safety Campaign (WFSC). QFRS partners with the FPAA (Qld) to highlightand provide awareness to the community across a range of fire safety issues including aconcentrated focus during Fire Awareness Week. This campaign is conducted during themonths of June, July and August each year.• Juvenile Arson Offenders Program (JAOP). QFRS has a lead role and responsibility fordelivering the program to combat arson. This is a structured program that educates aboutthe dangers of fire as well as the emotional, financial and community costs of arson.Individuals are referred to the program by the judicial system or other government agencies.• Motor Vehicle Offenders Program (MVOP). This is a flexible, tailored program for use withyoung people who have become the subject of the judicial system in relation to motorvehicle offences. It is a component of community based intervention.• Safecity. Developed by QFRS, this program includes police, rail authorities, educationproviders, Meals-on-Wheels, health care providers, the Magistrate’s Court and Pine RiversCouncil. The program seeks to educate school children on living safely and responsibly inurban communities and the interrelationships between individuals, the community and cityinfrastructure.Chapter 3Foundations of Queensland Fire and Rescue 49

Workplace Health and SafetyThe legal obligation on QFRS as an employer in Queensland is to ensure the healthand safety of its employees. Firefighting (including rescue) is considered by many asan inherently dangerous occupation, however, the number of injuries and fatalitiesoccurring in Australian fire services on the fireground is minimal compared to other highrisk industries. This low frequency is representative of the way fire services manage thehealth and safety risks associated with the business.The incident ground is a workplace, whether it is a burning building, wildfire, vehiclecrash or hazardous material spill. Generally, the community expects firefighters to arrivein a prompt manner and take calculated risks to save lives and property and restoresome level of normality. Given the context of the working environment, QFRS implementsa range of risk management strategies which focus on making the workplace safer,applying safer practices and creating a safer person.Chapter 3QFRS is committed to achieving the highest possible standards of health and safety,both in the operational and non-operational environments. Consequently QFRS hasadopted “Zero Harm – all injuries are preventable” as its mission for workplace healthand safety. This mission reinforces QFRS’ value that it is never acceptable for a firefighterto be injured in the course of their work and that all risks to firefighters must be activelyidentified, assessed and controlled to an “as low as reasonably practicable” (ALARP)level. QFRS is committed to ensuring that Zero Harm becomes part of the culture and it isexpected that all staff will work in partnership with QFRS to achieve this.QFRS, through the Fire and Rescue Service Act 1990, has the legal obligation to deliverfire, rescue, and hazardous materials services to the community of Queensland.In discharging the organisation’s obligation and to ensure the health and safety ofemployees and others (for example, the community), QFRS has to plan for foreseeableincidents and provide suitable equipment, training, supervision, policies and procedures.These are an integral part of sound management of the organisation and ensure thatservices are provided safely, effectively and efficiently.While training, equipment, personal protective equipment and experience will do muchto reduce the likelihood of accidents during fire and rescue activities, the inherentattitude of firefighters is equally important. Identifying when and how to take calculatedrisks and when to avoid risks will ultimately serve firefighters best. Each incidentpresents many variables, including risks, exposures and available resources. Firefightersmust adapt knowledge (for example, pre-incident inspections (including requisitepremises improvements), planning, training, previous experiences and innovativeapproaches), obtain incident information and apply judgement to each situation(assessing risk versus outcome), to safely resolve the incident with the most effective andefficient use of available resources.50 Foundations of Queensland Fire and Rescue

This is captured in the Commissioner’s Directive, which includes the following statementsadapted from the United Kingdom fire services and endorsed by the Home Office, toemphasise to all operational personnel this position:We may risk our lives a lot, in a highly calculatedmanner, to protect saveable lives.We may risk our lives a little, in a highly calculatedmanner, to protect saveable property.We will not risk our lives at all, for lives and propertythat are already lost.Source: Dynamic Management of Risk at Operational Incidents(1998). Home Office. The Stationary Office. London.Wellness ProgramFirefighters have an ongoing responsibility to remain fit and healthy, enabling themto fulfil their obligations and responsibilities to the community, their colleagues andthemselves. QFRS encourages this through the wellness initiative. The introduction of theWellness Program is an approach committed to continually improving health and fitnesslevels and comprises two distinctive components. The passive component involves theprovision of information and educating firefighters on a range of health issues throughnewsletters, seminars and campaigns and the active component comprising a cycle ofhealth profiles, fitness profiles and fitness programs. Firefighters have the opportunityof undertaking physical exercise for an hour on shift; however this does not takeprecedence over operational work schedules and preparedness.Chapter 3Building Construction Advice, Inspections and On-the-Spot-FinesOne of the key functions of QFRS risk mitigation is to ensure that at the design, approvaland construction phase the appropriate fire safety requirements outlined in codes,standards and legislations are implemented. QFRS provide, at the state, nationaland international level, input into these codes, standards and legislation. QFRS alsoinspect buildings to ensure they meet the required fire safety standards. The Childersbackpacker hostel fire tragically claimed 15 lives and indicated the need for a more robustenforcement regime. Where risk modification measures are not willingly adopted, QFRShas introduced on-the-spot-fines for breaches of relevant building safety legislation.This provides a further enforcement option to ensure adequate fire safety standards aremaintained and risks of fire are reduced in the built environment.Foundations of Queensland Fire and Rescue 51

Fire Wardens and Burning for Agricultural and Risk Reduction PurposesQueensland has 240 Chief Fire Wardens and 2,500 Fire Wardens providing a level of firemanagement to the whole state. They provide systems and procedures to implementfire control measures before fire suppression is required. Fire Wardens are seen ascustodians of fire as a tool, determining when it is safe to use and imposing safetyconditions on that use. They maintain effective relationships with officers of the QFRSRural Operations who support and facilitate their role across rural Queensland. Thewardens are instrumental in maintaining the ‘permit to light fire’ system and:• specify the conditions under which a fire can be lit;• undertake a community awareness role;• control the use of fire in a designated area; and• grant or reject a permit to light fire.This system of operations is detailed in the ‘Guideline Manual for Standard Procedure –Chief Fire Warden/Fire Warden’.Fuel ReductionHazard reduction has been a standard practice for many years as part of normal landmanagement regimes – often using fire to reduce the risk of uncontrolled wildfire. Fuelreduction burning, or other forms of hazard reduction, is a risk reduction activity. It maytake many forms including:Chapter 3• local fuel reduction initiatives by an individual property owner to reduce grass prior tothe fire season; and• planned fuel reduction burning in public land estates, such as national parks andreserves, to reduce the fire hazard.These measures maintain biodiversity of native species requiring fire to regenerate.The QFRS Geographic Information Systems (GIS) unit collects this data, as well asanalysing and mapping fire hazard areas, and maintaining various forms of bushfirehazard mapping.Fuel reduction initiatives by the QFRS are high risk activities as the service initiatesthe fire. Any fuel reduction activity needs to be well planned, with clear objectives anda detailed risk assessment completed. Notification of intentions needs to be clear toadjoining properties, communities and authorities.52 Foundations of Queensland Fire and Rescue

The Indigenous Use of FireHistorical accounts and research support the argument that indigenous Australians usedfire as a land management tool and much can be learnt regarding burning the landscapeand this valuable information should be actively sought and recorded. On Cape York andin the Gulf country, fire remains a high priority in maintaining tradition and indigenousculture. QFRS supports the conduct of research to identify sound scientific basis for fuelreduction, to minimise risk in local communities. This may reflect indigenous burningpractices but may also generate alternative mosaic burning regimes to reduce risk.ReadinessReadiness is the Third Element of the 5R’s. It is a combination of competency, training,attitude and availability, embodying everything that can be done before an emergencyoccurs. It applies not only to QFRS and the DES, but equally to communities andindividuals. It requires community education and public information.Planning for Readiness. Planning is an essential element of readiness that also reducesrisk and minimises the likelihood of adverse outcomes. Planning is a responsibility forQFRS at all levels, for each crew, shift, station, area and region, and on a state-widebasis. The quantity of planning is reflected in the quality of readiness and response.Pre-incident Planning. Pre-incident planning involves the collection of information andwhere possible, the establishment of relationships with the community involved. Thisplanning allows for a more effective and rapid application of strategies, tactics andresources to resolve an incident. This information is combined with current proceduresand evolves to become local action plans for an identified high risk location or situationwithin a community.Chapter 3State Planning Policies. State Planning Policies (SPPs) are a means by which the StateGovernment records its requirements or standards, to inform organisations makingdecisions within local authority planning schemes. QFRS involvement in SPPs isessentially around natural hazardous events such as flood, landslide and bushfire. TheSPP provides ‘model solutions’ to the problems of protecting people and infrastructurefrom bushfires, which local authorities can then draft into their planning schemes. Anexample is a Fire Management Plan. It provides a bushfire hazard assessment tool, andprovisions to protect against different levels of hazard.QFRS has an increasing role advising on mitigating the threat of natural disasters to newdevelopments in the state. Some QFRS officers are seconded to Local Authorities toprovide advice and expertise to inform policy and refine action plans. QFRS staff assistwith the development of planning schemes and provide some advice on developmentplans for individual landholders.Foundations of Queensland Fire and Rescue 53

Inter-Agency Planning. Within the DES there are opportunities and obligations forplanning that extend beyond QFRS. Joint planning, within a whole-of-governmentapproach, is becoming an increasingly important aspect of readiness. Planning forincidents involving security threats, community events and major natural disasters allinvolve a number of emergency services and police, as well as specialist advice fromrelevant departments, directorates or branches. The establishment of Regional Inter-Departmental Committees for bushfires is but one example of inter-agency planning inthe rural sector.QFRS has an ongoing obligation to undertake joint planning in the first instance withthe QPS and agencies within the DES that is, EMQ and QAS. This multi-agency approachto planning for response to emergencies builds a level of redundancy and depth andavoids the likelihood of duplication of planning effort. This is formally recognised in localdisaster management arrangements that involve Local Disaster Management Groups(LDMG) developing local plans.Chapter 3Shared Responsibilities. Responsibilities for planning and other readiness functionsdo not lie solely with QFRS. The service acts as a facilitator to ensure that industry,communities and individuals also prepare themselves for fire events. In urban areas, thisincludes monitoring occupiers to ensure:• they develop fire evacuation plans;• buildings meet appropriate building fire safety legislation, including the Building Act1975, Integrated Planning Act 1997, Building Code of Australia (BCA), Fire and RescueService Act 1990 and the Building Fire Safety Regulation 1991;• installation of fire alarms; and• awareness of available fire programs to become better informed.54 Foundations of Queensland Fire and Rescue

In rural areas this includes ensuring landholders receive information on:• the bushfire threat through,local municipalities, Fire Wardensand local QFRS Regional Offices;• using fire responsibly and in acontrolled manner during agriculturalpractices and where identified; and• using fire to reduce fuel loads.QFRS Operational Coordination. The State Operations Coordination Centre (SOCC)provides a strategic overview of operations across Queensland, by monitoring andcoordinating the allocation of resources between the regions. High value resources suchas aircraft are coordinated from the SOCC. The SOCC liaises at a state level with DES andother states and federal emergency services staff.Incident Control Centres report to Regional Operations Coordination Centres (ROCC) whenestablished providing a link to the SOCC. They also liaise with other agencies includingthe media at a regional level. Where practical, they are co-located with the FireCom.QFRS Operations DoctrineThe QFRS Operations Doctrine is the Fire and Rescue Service state-wide approach toemergency response and incident management. Components include:• QFRS Incident Management System (IMS). AIIMS is the nationally adopted frameworkfor incident management that individual agencies must adapt specifically to theirown structure and needs. QFRS IMS implements AIIMS within QFRS and provides thedetailed command and control process for managing incidents.• Incident Action Guides (IAG). These are incident specific guides developed to assistin identifying hazards, key control measures and considerations for responses suchas trench rescue, wildfire and structural fires.• Incident Directives (INCDIR). INCDIR give personnel the organisational direction forspecific actions at incidents such as fire watch duties and finding valuables.• Incident Forms and Tools. The provision of standard forms, checklists and worksheetsto assist and support incident management.• Field Incident Guide (FIG). The provision of practical advice for on-site personnel.Pocket-sized book developed for rural and urban use.Chapter 3Foundations of Queensland Fire and Rescue 55

Chapter 3Operational CommunicationsCommunications are essential for efficient QFRS operations. Every call for assistance isanswered in one of the seven Fire Communication Centres (FireCom) throughout the stateor through local alarms in rural areas. FireCom centres are equipped with CAD systemsthat record and assist operators in identifying the closest appliance and crew to achievethe fastest response. Crews in turn communicate with respective FireCom centres onarrival at a scene and provide updates with subsequent reporting messages.Surge Capacity. A unique feature of QFRS is the inherent surge capacity by drawing on theextensive resources readily available. QFRS can rapidly escalate the number of urban andrural resources, to respond to extraordinary events in a pre-determined manner to meetplanned and unplanned contingencies. Likewise, through the implementation of the twoState Incident Management Teams (SIMT) and Regional Fire Coordination Centres (RFCC),significant numbers of resources can respond to rural and inter-zonal fires throughout thestate to provide 24 hour cover at the emergency.Equipment Readiness. Day to day equipment readiness is a responsibility of each crewand defined in the SIOPP. Each region has the responsibility of ensuring appropriateequipment servicing and maintenance is completed as per manufacturer requirementsand existing contractual arrangements and as per SIOPP. Major urban equipmentmaintenance programs have a seven year capital replacement program, while rural fleetreplacement programs are currently in a twenty year cycle, with the intent to reduce thisfigure to fifteen years. Capital equipment and fleet replacement is the responsibility ofthe Department of Emergency Services in liaison with the Assistant Commissioners, toensure that appropriate equipment, appliances and vehicles are procured within the lifecycle of each item, in accordance with departmental and state government guidelines.The last two approaches to risk management, response and recovery, are explored inChapter 4.56 Foundations of Queensland Fire and Rescue

Foundations of Queensland Fire and Rescue 57Chapter 3

Chapter 4Operational Response and RecoveryThis chapter describes the last two of the 5R’s: response and recovery. It detailshow QFRS responds to emergencies and the actions and events that occur after theincident(s). QFRS applies a risk management approach to emergency situations andmanages the residual risk by operational response. Less than 10% of QFRS time is spentresponding to incidents and ideally, this proportion should continue to reduce. Asgreater resources are applied to risk mitigation, less time should be spent on operationalresponse and the consequences of future incidents should be less.QFRS Lead Agency. QFRS is the lead agency for the following emergency operations:• Structural fires including industrial, domestic and high- rise;• Bushfires including in the iZone and in open bush country;• Hazardous chemical incidents including special operations; and• Rescue of persons trapped in a vehicle or building collapse.Chapter 4ResponseWhile weather forecasts may assist in identifying high-risk days for bushfires or thepotential for impact by cyclones and floods, many other emergencies occur with little orno warning. Generally, the placement and allocation of QFRS resources will meet dayto-dayrequirements, but at times, they will not. On these occasions, the QFRS needs toprioritise tasking and resource allocation.QFRS adopts an approach of centralised dispatch and decentralised delivery. This variesin some regional areas where rural services respond to locally initiated calls and generallyoperate within a locally designated area. The centralised dispatch, decentralised deliveryapproach ensures that at the time of dispatch, assessments can be made regardingtasking and resourcing. It also acknowledges that the level of resourcing may vary duringthe incident.Greater Alarm Response System (GARS). Effective response to emergency incidents mustinclude:• a rapid dispatch of resources;• an appropriate weight of attack for the type of emergency;• notification of relevant officers and authorities;• appropriate capabilities and equipment to safely resolve the emergency; and• an appropriate level if incident management relevant to the type and size of theemergency and the resources committed.58 Foundations of Queensland Fire and Rescue

One fundamental basis to effective response is to ensure that the organisation hasappropriate mobilisation protocols that provide sufficient resources, both in termsof physical resources and a management structure that is appropriate with the scale,intensity and duration of the incident. QFRS has adopted a system of response resourcemobilisation known as the Greater Alarm Response System, or GARS.Operational ServicesOperational services include emergency services, the provision of information and nonemergencyservices.Concept of OperationsThe Concept of Operations is described in terms of emergency response and nonemergencyfunctions and in the QFRS context refers to resourcing and response topre-determined risks.In urban areas, resources are deployed through centralised dispatch and control tothe incident site, where the operational control of the incident is managed locallyin a decentralised manner. For example, a house fire warrants a response of twoappliances. This response can escalate depending on the size and duration of the fire.The operational control of the incident is the responsibility of the ‘on scene’ incidentcontroller; it is not maintained centrally.For rural operations, the dispatch may either be via a centralised communication centreor decentralised as a result of a local call. Control again remains decentralised with thelocal brigade officer or crew leader. If the response escalates because of the size andcomplexity of the incident, the QFRS IMS expands with it ensuring effective resolution.On high fire danger days, rural operations attempt to maintain an approach of an earlyinitial weight of attack where possible, to limit the spread of the initial ignition.In both urban and rural incidents, the first arriving officer in charge is the initial incidentcontroller, who identifies and requests additional resources as required, and managesthem through the QFRS IMS structure (detailed in succeeding paragraphs). This providesfor a graduated level of response, dependent on the predetermined risk and the successof the initial attack.The concept of operations for non-emergencies relies on a functional approach.Functional areas include:• Operations Management;• Community Safety Operations;• Professional Development; and• Operations Business Management.Chapter 4Linking concepts of operation for emergency and non-emergency events creates a matrixof responses and accountabilities, providing the best possible outcomes for Queenslandcommunities.Foundations of Queensland Fire and Rescue 59

Chapter 4Local Knowledge. The use of local knowledge means knowledge of the both localenvironment and of previous fire events. This is essential in all types of operations wherea local member is, where possible, included by the incident controller in the set up of anIncident Management Team (IMT).This is not the only way local knowledge should be valued. It should be collected onan on-going, long-term basis and be included in fire management and response plans.Individuals should be identified before an event as being a suitable source of localknowledge. It does not have to be a local firefighter. It can be provided by a member oflocal government, a long-term resident, or anyone with detailed knowledge of the area.It is important during fire response that authorities recognise and use both forms of localknowledge within the operational framework.60 Foundations of Queensland Fire and Rescue

Urban and Rural Integration. While urban and rural operations are arranged differentlythey are effectively integrated on the fire ground and many more similarities thandifferences exist between these crews. These include:• Flexible capabilities. While QFRS crews are well known for their fire fightingcapabilities, they are less recognised for their rescue capacity or their fireinvestigation capabilities. QFRS urban and rural firefighters will endeavour to assistlocal communities in every way possible.• Service delivery via Operations Management Systems. QFRS has developed acomputerised OMS that engages all full-time urban shifts and requires their input intoactivities and achievement of work goals. This information is passed electronicallyto QFRS headquarters. The OMS continues to evolve and is a sophisticated tool forplanning and execution of station activities and good governance. While this systemis currently not being used by rural crews, the potential exists for adoption of a similarsystem across the QFRS in the future.• Administrative managements. Urban fire stations are grouped for administrationinto areas that are managed by an Area Director. Five to seven areas make up eachurban region. Each region is managed by an Assistant Commissioner. In a similarfashion, rural brigades are administered in areas which have an Area Director RuralOperations. Three to seven areas are in each Rural Region. There are RegionalManagers Rural Operations in each of the Rural Operations Regions (matching theurban regions). Each Regional Manager Rural Operations reports to the DirectorRural Operations. The Rural Division is headed by an Assistant Commissioner (RuralOperations). These administrative arrangements and command structures areillustrated in Figure 2-2.• Command arrangements. While there is some variation between commandarrangements for urban and rural divisions as depicted in Figure 2-2, essentially theyreflect a similar progression. With AIIMS in place, operational command arrangementsare rationalised under the one unified system.Chapter 4Foundations of Queensland Fire and Rescue 61

Chapter 4Australasian Inter-Service Incident Management System. AIIMS is the nationallyendorsed management system for any emergency. It was developed in Australia inthe mid 1980’s, its genesis being the United States National Inter-agency IncidentManagement System (NIIMS). AIIMS is a robust system enabling a seamless integrationof activities and resources of multiple agencies when they are applied to an emergencysituation. The framework can evolve to suit the circumstance or event, regardless of thesize of the incident or whether single or multiple agencies are involved. QFRS activelyencourages other agencies to adopt and use AIIMS methodology to increase the ability ofa whole-of-government response to major incidents.The frequency and complexity of multi-agency operations, both within Queensland andacross other jurisdictions, has increased in recent years. This has highlighted the need fora consistent, universally understood and applied system for managing incidents, whichcan expand as the incident itself grows and becomes more complex. AIIMS will operateeffectively for any type of incident, imminent or actual, natural, industrial or civil. It canalso be used for non-emergency incidents such as major events or conferences.QFRS has adopted AIIMS and is known as the QFRS / Incident Management System(IMS) and is used for both rural and urban incidents. It is dependent on those involvedhaving been trained in AIIMS and retaining competency. The AIIMS approach is in placewhenever a QFRS crew responds operationally. The officer in charge adopts all thefunctions of AIIMS (see Figure 4-1) until that person determines that they need additionalsupport to assist and manage the incident, either due to the complexity, dispersed natureor duration of the incident.Figure 4-1: The Basic Structure of AIIMS62 Foundations of Queensland Fire and Rescue

Command, Leadership and ManagementQFRS is a high profile, visible organisation when it responds and engages with the public.There is a clear expectation that QFRS firefighters will demonstrate the highest standardsof operational leadership and technical proficiency in command and management of thefire and rescue capability. QFRS must be seen as a well led, disciplined, professionalteam with a resilient operational capability available to assist the public. For this reason,QFRS has invested heavily in developing the functions of command, leadership andmanagement with its firefighters, who understand both the similarities and differencesbetween these three functions.Command. QFRS Firefighters need to take command. When the public are vulnerable,when the environment is uncertain, when normality is absent, it is the role of QFRSfirefighters to use their command authority. This implies positive actions to bringevents under control, allocation of resources to deal with risks according to priority anddelegation of responsibility to those competent to deal with tasks. Firefighters alsoneed to respond to their officers and acknowledge the authority in the rank, positionand experience of QFRS senior staff and volunteers, together with the authority of otherservices such as QPS.Leadership. QFRS firefighters are leaders in the community, operating jointly with otheragencies and within the service itself. Equally important, QFRS firefighters are preparedto support leaders and undertake their intent willingly as part of a committed team.Leaders can be trusted; they live the values of the Service; they empathise with othersand display respect. However leadership cannot be delegated. It is either exercised or theperson relinquishes the right to lead.Chapter 4Foundations of Queensland Fire and Rescue 63

Management. Management relates to both operational and non-operational situations.Operational management of fire and rescue incidents is what the public expect of theQFRS. The public assume that firefighters operate equipment proficiently, understandand manage the risks involved and will take appropriate action. For larger scale incidents,QFRS is expected to manage these major incidents and keep the community informed.The standard of public acceptance for non-operational management is equally as high.Accountability for expenditure of public monies must be faultless and assets must bemaintained and controlled in line with community expectations.All these components reflect a functional management model that give an operationalfocus to all activities, but ensure that they are underpinned with sound administrativeprocesses and structures. These are translated at a crew level into Total StationWorkloads and tasks. Tasking for full-time stations is allocated to each shift as follows:• Shift A coordinates operations management;• Shift B coordinates community safety operations;• Shift C coordinates professional development; and• Shift D coordinates operations business management.You can hear some firescoming – they roar. The wind isthe biggest factor and can trapyou real quick.Roy MossYuleba Rural Fire BrigadeChapter 4At an auxiliary crewed station and at volunteer brigades, these functional roles may besplit between officers and senior firefighters.64 Foundations of Queensland Fire and Rescue

Emergency Response to IncidentsQFRS is capable of responding to a wide range of incidents and has extensive capabilitiesincluding:• Industrial Firefighting. Industrial firefighting is potentially amongst the mostchallenging firefighting QFRS is likely to command. Pre-incident planning andawareness of layout, together with knowledge of chemicals held in industriallocations is vital. Industrial firefighting is likely to require large numbers of urban andaerial appliances, operating over extended periods. Containment is likely to be a highpriority.• Residential Firefighting. Residential fires are still too common and QFRS attends over1,500 residential fires per annum. The intent of attending crews at house fires is toundertake any rescues required and contain the fire to the room of origin, therebyminimising injury, loss of life and property damage. Residential smoke alarms play avital role in accelerating responses, therefore reducing damage and loss of life fromhouse fires.• Rural Firefighting. Rural firefighting has particular challenges due to trends in risingtemperatures as a result of climate change, increased exposure along an everincreasingiZone and greater expectations that rural fires can be readily contained.Rural fires are difficult to control due to the changing location of fire ground and thelikely impact on properties, houses and stock. The fighting of rural fires has becomemore complex with the use of aerial operations and the need to keep the communitywell informed.• Road Crash Rescue. QFRS firefighters attend over 9,500 vehicle emergencies requiringrescue and medical support per annum. This has become a major response activityand in turn, significant resources are directed towards vehicle accident prevention.Road crash rescue involves providing fire cover at vehicle accidents, rescuing driversand passengers who are trapped in vehicles and assisting other emergency servicesas required.• Search and Rescue. Urban Search and Rescue (USAR) is a specialist rescuecompetency developed to assist in urban emergencies, such as building collapsescaused by earthquake. Rural search and rescue usually involves land searches and isdone in support of police or EMQ.Chapter 4Foundations of Queensland Fire and Rescue 65

Chapter 4• State Urban Search and Rescue Cache. Located at the home of Special Operations atCannon Hill, is the State USAR cache. This is a specialist storage capability of tentage,generators, over-pacs, ration packs, over-suits, breathing apparatus and otherspecialist stores. The State USAR cache has supported deployments overseas duringnatural disasters and is in place to assist extended deployments where QFRS seeks tobe self-sufficient.• Special Operations. The QFRS Special Operations Unit has arrangements in placeto support QFRS regions and specialist branches of the QPS with advice, trainedpersonnel and equipment developed for Hazardous Materials (HazMat) andtechnical rescue. This includes chemical, biological and radiological incidents,USAR, vertical, confined space, trench and swift water rescue. Services includecontainment and decontamination, additional breathing apparatus capability andover-pacs for substance recovery. The Special Operations Unit can be deployed byvehicle or aircraft, although much of the equipment is fitted within specially designedpantechnicons.• Scientific Unit. Scientific services are provided by the Scientific Unit whose membersare available for advice on chemical reactions and hazardous materials and canprovide support 24 hours a day.• Heavy Transport Fire and Rescue. QFRS are called to assist with fires and rescuesinvolving heavy transport such as rail, heavy road transport, assistance to airportaviation and maritime fires and rescues. These rescues often require heavy liftequipment, on occasions confined space rescue, and long duration breathingapparatus techniques.• Air Operations. Air operations are a sophisticated form of firefighting. Whilethey could have application in many circumstances, their most effective use inQueensland is at the iZone. Because of the flexible nature of air operations, liaisonwith Queensland Parks and Wildlife Service (QPWS) and Forestry staff is vital. Aircraftare most effective assisting ground crews as soon as practical after the initial ignitionof a fire, or during specific asset protection. Operating in close cooperation withground crews is essential for safety and because aircraft alone do not extinguish firesground crews are always required. Air operations require considerable teamwork andcoordination and should never be considered as a single answer to resolving bushfirechallenges. Air operations involve the safe utilisation of aircraft, and the training andongoing competency of Air Observers, Air Attack Supervisors, Aircraft Officers andGround Base crews to support, refill and refuel aircraft.66 Foundations of Queensland Fire and Rescue

QFRS utilises a combination of rotary and fixed wing aircraft normally based in South-EastQueensland. They are used for:• reconnaissance;• mapping;• communication relay;• aerial ignition;• crew transportation;• fire attack; and• asset protection.Provision of InformationThe provision of information from the service upwards to the department and stategovernment, laterally to other agencies, outward to the community and downwardthrough the chain of command is becoming increasingly important in the ‘informationage’. There is a shared responsibility with other emergency services and the QPS toensure the public receives adequate warnings, updates and announcements in regard toemergency incidents. Specifically QFRS has responsibilities for:• Safety Messages to the Community. QFRS provides information to the publicpromoting messages regarding safety. This is through the form of brochures, publicadvertising, talks, community consultation, radio and television. It becomes moreimportant during operational incidents.• Warnings for Fires. Rural Operations provides advice to the public regarding thecurrent bushfire threat and appropriate warning levels. In particular the declaration offire ban advice is important not only to the public, to reflect the level of risk, but alsoto industry to advise on the cessation of some activities such as forest harvesting orthe use of any machinery that produces sparks. During large urban fires QFRS hasresponsibilities for warning the public about safety adjacent to the fire ground andhazards such as toxic smoke. Should the fire be of such magnitude and cause a threatto community safety, QFRS would inform the QPS who may invoke the Public SafetyPreservation Act to extend the warning to the general public and declare a designatedarea around the fire, thereby allowing evacuation from or controlled movement withinthat area as necessary.Chapter 4Foundations of Queensland Fire and Rescue 67

• Relationship with the Media. To achieve these ongoing safety messages and bushfirewarning levels, a mature and close relationship with the media is required. It is toolate to attempt to develop this relationship during a major incident. The relationshipneeds to ensure media representatives have undertaken basic wildfire awarenesstraining, are equipped with appropriate protective clothing and understand notonly the likely fire conditions and safety requirements, but the implications (likelyresponse measures) of the various fire conditions.Non-Emergency ServicesQFRS provides a wide range of non-emergency services that assist in operational deliverytogether with the administering of legislation.• Fire Scene Investigation. QFRS undertakes two types of fire investigation. The first isurban ‘fire scene and fire cause’ investigation of structure fires. The second is rural‘point of origin and fire cause’ investigation of bushfires. The results of fire causeinvestigation may lead to criminal prosecution in the case of arson investigationsand professional judgements will be tested in the courts. QFRS maintains a State FireInvestigation and Research Section which supports fire investigators located in eachregion. Fire investigators maintain competency at three levels:• Fire scene preservation;• Fire scene examiner; and• Fire cause investigator.Chapter 468 Foundations of Queensland Fire and Rescue

• Planning, Building Assessments and Legislative Compliance. QFRS undertakeextensive assessment of building plans for all new buildings and those requiringsignificant extension or renovation to ensure that proposed developments meetfire and safety requirements under appropriate legislation. Included in this isassessment of design and construction to reduce risk and ensure compliance withrelevant legislation. This is applicable both in urban and rural environments, wherecompliance with the Building Code of Australia is required in designated bushfireprone areas. QFRS also issues on the spot fines and or follows up with prosecutions.• Fire Management Strategies. QFRS Rural Operations staff operate closely with stafffrom QPWS and the Environmental Protection Authority (EPA), to develop sustainablepark and forestry management plans that require detailed fire management analysis.• Overseas and Interstate Advice and Support. QFRS’s support and advice has beenoffered and requested on a range of occasions in recent years. These includedeploying self-contained contingents to NSW, ACT and VIC during major bushfireemergencies. It has also included deployments to Indonesia after the 2004 tsunamiand during an air pollution crisis as a result of ongoing forest fires. QFRS is flexible inits approach and the application of its capabilities and can adjust and respond to allthese requests. Deploying as self-sufficient as possible is a feature of QFRS interstateand overseas operations.• Command, Control and Communications. Through the utilisation of existing commandstructures within the QFRS, the application of AIIMS incident management and theexisting operational communication facilities, QFRS applies its command, controland communications capability to a wide range of incidents beyond emergencymanagement. This may include major event management or sporting occasions.Chapter 4Foundations of Queensland Fire and Rescue 69

Joint OperationsChapter 4QFRS rarely operates in isolation. In an ever-more complex world, QFRS generally operatesjointly with other agencies. As QFRS is part of the DES, this approach is reinforced bydepartmental policy and leads to an ‘all hazard – all risk’ joint planning and responseapproach. Some of the results of this approach include:• QFRS establishes joint planning teams with other emergency service agencies andQPS to ensure that there is common awareness of objectives, limitations and desiredoutcomes. Planning in isolation is discouraged;• Subsequently, QFRS deploys a support force made up of joint task forces and striketeams to undertake operations. This has consistently occurred for both Queenslandoperations and interstate operations where QAS crews have joined QFRS duringdeployments;• QFRS supports a unified command approach, not only with urban and ruraloperations, but when operating with other agencies;• QFRS Rural Operations staff have ongoing joint operations with Land ManagementAgencies, including EPA (which includes QPWS) Department of Natural Resources,Mines and Water (which now includes the native forest responsibilities of the formerDPI-Forestry) and Forestry Plantations Queensland;• For many security operations including planning for counter terrorism, QFRS isintimately involved in planning with QPS and other state government agencies toimplement risk mitigation and response arrangements;• QFRS has ongoing documented arrangements with:• Other emergency responders such as minesrescue and airport fire services;• Other government emergency coordinators, such as Department of Communities, whohave prime responsibility for recovery services;• The coroner and courts when major investigations are required, deaths have occurredas a result of fire or charges are likely to be laid; and• Media units, both government and commercial media, on an ongoing basis.70 Foundations of Queensland Fire and Rescue

RecoveryRecovery is the final aspect of the risk managementframework explained previously in the 5R’s. This sectiondeals initially with the broader role of recovery during amajor incident and then focuses on QFRS internal recoveryarrangements.While recovery does not have a strong operational focus, it is oftena longer-term phase requiring extensive resourcing and causes ongoing pain and concernto those impacted by incidents. Actions during risk mitigation and response are aimedat reducing recovery requirements and the resources required in the recovery phase.Recovery should commence concurrently with response operations, to achieve the mosteffective implementation of recovery activities. Just like response, recovery requirestraining and exercises to test procedures and maintain competencies.While broader recovery operations are not a direct responsibility of QFRS, firefightersare aware of the recovery consequences during response operations and participate inthe provision of limited recovery support. This includes QFRS firefighters being aware ofissues such as minimising water damage during structural firefighting, toxic run-off duringHazMat incidents and environmental damage during rural operations. The role of QFRSmay be to alert QPS, land management or welfare agencies as well as other governmentauthorities as to the need for recovery support, even though QFRS itself may not beresponsible for providing it.The Community Aid and Post-Incident Support (CAPS) program. Each year around 1,500homes are substantially damaged by fire. The number of properties impacted by ruralfires varies but in most cases, property owners are adversely affected and may sufferfrom shock. They need to consider insurance, salvage, stock management and at timesdestruction, security of a fire damaged property, stock or paddocks, as well as identifyinglosses and replacing important documents. These issues affect companies as well asindividuals and families.Chapter 4Foundations of Queensland Fire and Rescue 71

The CAPS program provides emergency assistance to members of the community at atime when they need it most. This program seeks to improve customer service throughproviding a booklet, to guide people through what they need to do immediately followinga substantial fire, and a post-incident support program including tangible assistance,such as locally provided transport and emergency accommodation.Another example of QFRS involvement in recovery operations is the assistance providedafter major flood damage. QFRS has often been engaged in pumping out excess waterand subsequently washing out mud and debris from homes or businesses as the floodwaters subside.QFRS also conducts targeted post incident analysis (PIA) in relation to:• Operations Management and• Community Safety Operations.Chapter 4QFRS has direct responsibility for internal recovery actions. This includes activities withinQFRS designed to assist firefighters recuperate, restore operational equipment and learnfrom the activity. Specific recovery activities include:• Intellectual Recovery. Undertaken after action debriefs, to identify lessons andhighlight shortcomings, is important to reflect that QFRS is a learning organisation.This knowledge management ensures lessons from operational activities arecaptured, recorded, communicated across the service and introduced into trainingto improve procedures. These debriefs occur with individuals and crews through tolarger bodies, such as IMT’s. In addition to the learnings from internal operationaldebriefs.• Emotional Recovery. Some operations are particularly stressful and emotionallydraining. Critical incident stress debriefing has become a regular feature of recoveryprocedures, ensuring that individuals and crews have the opportunity to discuss thetrauma they experienced and share and ‘unload’ their experiences.• Equipment Recovery. After most incidents there is a degree of equipment recoveryrequired. This may include vehicle maintenance, breathing apparatus refurbishmentor cleaning and recommissioning equipment.• Operational Recovery. Finally, crews need to be fed, rested and briefed, so there isoperational recovery. During major events such as campaign bushfires, operationalrecovery may occur over a 12 hour period in a staging area. For many urban crews itwill occur on return to station or after the next shift change. At the final analysis, QFRScrews need to be ready and prepared to respond to the next tasks allocatedto them.72 Foundations of Queensland Fire and Rescue

FireCare. FireCare is the QFRS staff counselling and support program. Its goal is topromote staff well being by assisting individual staff members deal with work-relatedand/or personal problems.FireCare allows staff and volunteer members, and their immediate families, access to:QFRS has ongoing documented arrangements with:• confidential, professional counselling services;• critical incident stress defusing and debriefing;• training and consultation;• peer support; and• 24-hour confidential telephone counselling service.First line support is provided through a network of QFRS Peer Support Officers (PSO) whoare trained to assist and support fellow workers with either work-related or personaldifficulties. PSOs have access to specialist counsellors and health professionals.Counselling services are available free of charge for the first three visits. A user payspolicy applies after this.QFRS Chaplaincy and Family Support Program. This program exists for the purpose ofsupporting, nurturing and expressing the spiritual and religious beliefs and values of themembers of the QFRS and their families.QFRS Chaplains may assist with:• Crisis situations involving QFRS staff and volunteers and/or their families;• Intervention involving victims of emergency incidents;• Intervention involving staff or volunteers seeking family guidance;• Visit sick or injured staff at home or in hospital;• Assist with stress management; and• Provide a listening ear and keep what is heard confidential.There are a number of QFRS Honorary Regional Volunteer Chaplains and local Clergyrepresenting a wide range of Christian denominations throughout all the Regions.Regional Chaplains are nominated by the QFRS. Some Chaplains may themselves bevolunteer firefighters and brigade members. As such, they are under the same disciplinestructures of the Brigade as all other personnel. When acting in their capacity asChaplains, they resume their independent status.Rehabilitation. Whilst QFRS is committed to achieving a Zero Harm safety culture, it isrecognized that there may be times when QFRS officers suffer from either work or nonworkrelated injuries.QFRS is committed to providing workplace rehabilitation, including suitable duties, inaccordance with the Workers Compensation and Rehabilitation Act and Regulation 2002.The purpose of rehabilitation is to ensure that injured workers are returned to work asquickly and safely as possible and to ensure the retention of skills and competencies.Chapter 4Foundations of Queensland Fire and Rescue 73

Chapter 5Chapter 5Enhancing CapabilityThis chapter describes existing QFRS capabilities, outlined earlier, and how these will beenhanced in the future through training and development.The existing capacity and capabilities of QFRS are extensive and have been detailed inearlier chapters. They include the resources (both human and equipment), capabilitiesand systems that make up the complex and multi-layered organisation that is the QFRStoday. QFRS capabilities are constantly being reviewed within a framework of debriefs,identification of lessons learnt and recognition of training improvements, equipmentenhancements and procedural change.As a result, the training for QFRS firefighters is a career-long journey of opportunitiesand information, with some development milestones being optional and others beingmandatory.Significant capability improvements have been achieved in the areas of:• training facilities;• training of firefighters and training offered to workplaces and businesses;• organisational development with improvements such as the Operations Doctrine;• organisational structure, with the combining of Rural Operations into QFRS;• equipment and Personal Protective Equipment (PPE) available, particularly tourban crews;• flexibility of crews to respond to a wide range of emergencies;• development of USAR teams;• special operations capability focussing on HazMat; and• operations management capability for large incidents and on a state wide scale.74 Foundations of Queensland Fire and Rescue

Workforce PlanningCapability is enhanced through workforce planning being undertaken at a strategic, statewide level. This involves identifying the risks and demands facing the service; calculatingthe human resources required to mitigate the risk; establishing the stand-by capacityrequired and the competencies they will need to maintain; and developing a strategy tosustain the workforce at that level. This becomes particularly challenging when looking atsuccession planning, with an ageing workforce reflecting an ageing population.Recruitment, Retention, Training and Subsequent Succession Planning. QFRS has a verystrong retention rate among full-time firefighters and with many volunteers. Firefighterstend to remain in QFRS for much if not all their working life. Because of this, and thehigh demands placed on small teams of firefighters during emergencies, great effortis directed at ensuring recruits are suitable, capable and committed to the task. QFRSfirefighters are also required to maintain many technical skills. As such, training andeducation is constantly required and becomes a career long commitment. Successionplanning and promotion exists throughout the service and promotion opportunitiesare well established. Recruitment, training and succession planning varies for differentcategories of employment.Chapter 5Foundations of Queensland Fire and Rescue 75

Full-Time. The recruitment and selection process is competitive for full-time firefighterpositions, with recruitment occurring throughout the year. The rigorous selection processseeks to identify potential firefighters with the right attributes for today’s requirementsand for future challenges. The selection committee is sponsored by an AssistantCommissioner and includes an Area Director, Station Officer, Senior/leading firefighterand QFRS recruitment representative. After a 78 day recruit training course, firefighterscontinue their training on the job receiving a Certificate III in Public Safety after 3 months.Firefighters continue their mandatory training on the job by completing self-paceddistance education competencies over three years and are then awarded a Diploma ofFire and Rescue Operations.Auxiliary. Auxiliary firefighters are recruited locally wherever the vacancies exist. Theirselection and subsequent training acknowledges their part-time availability. Trainingis conducted regionally (locally where possible) and over an extended period. Auxiliaryfirefighters are obligated to attend ongoing training throughout the year and to beavailable for call-outs in their local area. Additionally, tactical operations training ismade available to Auxiliary Captains and Lieutenants at the QCESA Live Fire campus inBrisbane.Volunteers. Volunteer firefighters make up the 1,519 rural brigades across the state.Volunteers receive no remuneration. Their recruitment is based on local rural brigaderequirements and often stems from a sense of mutual obligation to support neighboursand their local rural community. Training is dependent on brigade classification and localarea requirements, which may vary from tropical coast to inland bush.Courses. The QFRS has a wide range of training programs both accredited and nonaccreditedthat are available to ensure firefighters and fire officers acquire and maintainappropriate skills. The programs range from short courses or information sessions tonationally accredited qualifications.There are approximately 160 programs of varying length that are currently used in theQFRS, too numerous to detail in this publication however, examples of the coursesinclude:Chapter 5• Incident Command training including AIIMS IMS and Senior Officer Command andControl Development program;• Building Fire Safety courses including Building Assessment, Inspection andCompliance and Fire Investigation courses;• Station Officer Development programs;• Skills Maintenance program;• Joint Emergency Service Training (JEST);• Graduate certificate and diploma programs managed through AFAC;• Specialist Technical Rescue, Urban Search and Rescue and Swift Water training;• Fire Season Readiness training such as iZone and Wildfire; and• Crew Leader training.76 Foundations of Queensland Fire and Rescue

At the completion of training over a three year period, urban full-time firefighters areawarded a Diploma in Fire and Rescue Operations. Other qualifications may include aDiploma of Public Safety – Firefighter Management.The Volunteer Learning and Development Framework is a new training structure, linkingtraining to volunteer roles. By aligning training courses to Rural Fire Service roles,volunteers have the opportunity to develop and maintain the specific knowledge andskills necessary to perform their role within the brigade.The main programs and topics provided by Rural Operations are:• Rural Fire Service Awareness (RSFA) - All persons joining a Rural Fire Brigade and allthose who undertake activities with RFB’s;• Support Members Development Program (SMDP) - Brigade Support Members andPrimary Producer Brigade Registered Members;• Fire Warden Development Program (FWDP) - Fire Wardens;• Firefighter Development Program (VDFP) - Firefighter minimum skills (FMS),Firefighter Advanced Skills (FAS);• Officer Development Program (ODP) - Crew Leader (CL) and Brigade Officer (BO); and• Brigade Management Program (ODP) - First Officers (FO) and Group Officers (GO).Given the recent changes to roles within the Rural Fire Service, this new frameworkprovides training for new positions, such as senior firefighter, and of course existingpositions including Crew Leader, Brigade Officer and First Officer. The DevelopmentFramework also offers training programs specifically for non-operational supportroles.Chapter 5Foundations of Queensland Fire and Rescue 77

Chapter 5Emergency Service Units. Together with DES, QFRS has established first responderjoint fire and SES units utilising local volunteers. These ‘emergency service units’ maybe established where QFRS and SES volunteers are the same people, or where thereis a shortage of volunteers and both responsibilities need to be covered. This is a newapproach to enhancing capability and promoting flexibility in response from the onegroup of volunteers.A Learning Organisation. Information gained from operational experience and technicalresearch is combined with factors shaping the future; factors such as the emphasis onrisk reduction, interoperability across agencies, climate change and the growth of theiZone. These lessons are shared across the organisation for training improvements,enhancing procedures and equipment. This knowledge management program ofcapturing experience and making it accessible to all is a vital strength of QFRS capabilityand future development.Reciprocal Exchanges. The QFRS supports reciprocal firefighter exchanges betweenQueensland firefighters and firefighters from overseas or other Australian States orTerritories. This is seen as a valuable form of experiential training and is very effectivein developing an individual’s skills, competencies and industry awareness. AssistantCommissioners in each QFRS region sponsor reciprocal training arrangements.In 1890 the brigade owned three horses and its major equipment consisted of:two steam fire engines, each with a capacity of 350 gallons per minute; sevenmanual pumps; two horse reels; one 58ft escape ladder and carriage.The breathing apparatus consisted of three smoke caps.78 Foundations of Queensland Fire and Rescue

Training CapabilityThe QFRS is committed to training and education as a long-term investment, aimed atmaintaining a highly skilled workforce. It is through quality training and reinforcementof good drills that firefighters develop the confidence, skills, knowledge and abilities tocombat and manage increasingly complex emergency situations. To ensure their skillsremain at the optimum level, it is essential for all firefighters to undertake continuoustraining activities, assessments and studies throughout their career. The QFRS hasadopted a holistic approach to training that combines training in physical skills with theoverall professional development of fire officers in command, leadership, management,operations procedures and a safe working environment.Training for Safety. Training also ensures that firefighters maintain a high level ofpreparedness in order to promote, foster and enhance the adoption of safe, effectiveand efficient work practices to fight fire, undertake rescues and complete other tasksrequired of them. Training has a significant role in underpinning the safety culture that isfundamental to QFRS operations.Chapter 5Foundations of Queensland Fire and Rescue 79

Registered training organisation. To maintain high standards of training developmentand delivery and to ensure that the training provided is nationally accredited. QFRS is aRegistered Training Organisation (RTO). This signifies that the training delivered meetsAustralian Quality Training Framework (AQTF) standards and provides national recognitionnot only to the qualifications gained but also the organisation delivering the training.Maintaining RTO status requires significant effort within an ongoing quality frameworkand certified levels of training delivery.Joint training and exercises. Increasingly, there are joint training exercises that practicea range of emergency planning, response and recovery functions. These involve theQFRS, EMQ, QAS, QPS and other agencies. Some of these multi-agency exercises utilisesimulation, including Vector Command, that practise commanders’ management anddecision-making during major incidents. This common exercising environment developsa joint approach that becomes invaluable when multiple agencies respond to a singleincident.Training centresAfter conducting extensive international research into the best firefighter trainingmethods and facilities, the QFRS developed a live fire program. This program uses alarge range of props and training aids, compartment firefighting and both liquid and gasfacilities to teach firefighting techniques under realistic but safe conditions. This givesQueensland firefighters a better understanding of fire behaviour, thus increasing safetyfor firefighters and the community.Full-time firefighters are initially trained at QCESA - one of the best purpose-built andstate-of-the-art firefighter training facilities in the world. This Academy, along withregional and on-site training is also available for commercial customers wanting the besttraining and emergency management consultancy for their organisation. The QFRS SouthWestern Confined Space Training Facility is the best facility of its kind in Queensland, fortraining under realistic but safe, confined space conditions.Training and Emergency Management (TEM) is the commercial training unit of QFRS. It hasbranches across the state and assists organisations in Queensland and internationally toimprove their standards of fire safety and emergency management. Extensive commercialtraining is also conducted in regional centres and at workplaces across the state.Chapter 580 Foundations of Queensland Fire and Rescue

Training delivery. While the majority of skill acquisition is completed at formal courses,skills maintenance is completed locally at the station or rural brigade. Urban firefightersmaintain skills on shift or attend specific courses to gain additional competencies.Additional learning usually involves a distance education model. Rural training isgenerally conducted in small informal sessions, focusing on a single topic or unit, at atime and place convenient for the volunteers. Training units contain elements of theory,discussion and practice. A mix of experienced volunteers and new recruits join in regulartraining sessions, both to upgrade skill levels and to maintain a satisfactory state ofoperational preparedness.Training responsibility. Both the QFRS and individual firefighters have a jointresponsibility under Workplace Health and Safety legislation to maintain competencies.The QFRS responsibility is to ensure that the relevant training is made available. Anindividual’s responsibility is to ensure that he or she undertakes the training that isoffered.Competency Training and Individual DevelopmentQFRS firefighters are provided with the training and development required to delivera range of competencies. Training modules for each competency are designed to beundertaken by individuals according to a balance between mandatory requirementsand personal goals. The following are indicative competencies for both urban and ruralfirefighting:• Suppress urban fire and wildfire;• Various IMS roles such as operations, planning and logistics;• Demonstrate structural firefighting techniques;• Undertake technical rescue;• Assess building fire protection systems; and• Response to aviation incidents.Train the trainer. QFRS also trains crews and individuals operating with commercialclients, such as mines and airports. However QFRS does not have sufficient time to traineach of these individuals. With this in mind, QFRS adopts the approach of ‘train thetrainer’ for much of its professional training and for some aspects of commercial training.This allows the development of workplace instructors with certified competencies totrain their colleagues under a recognised program of instruction and assessment. QFRSrequires potential trainers to be up to date with knowledge of workplace practices sotraining can be adapted to meet specific workplace needs. Potential trainers also needthe skills, knowledge and confidence to deliver these programs within the workplace ortraining environment.Chapter 5Foundations of Queensland Fire and Rescue 81

Chapter 5A Vision for the FutureFactors impacting on future capability. Many of the factors that may influence the futurecapability of the QFRS have been identified earlier in this strategic doctrine. They arelikely to place greater pressure on QFRS in the future but also provide new opportunities.They include:• Demographics (ageing population). While demographics point to an ageingpopulation, every indication is that QFRS will remain able to recruit young full-timefirefighters when required. The impact of demography will be centred on the ageingcommunity QFRS serves, not its own workforce.• Sustainability of water as an extinguishing agent used for fire fighting requirementsin domestic, industrial/commercial and bushfire settings and as an agent in fixedinstallations in buildings such as hydrants, sprinklers and foam installations.• Increasing urban and decreasing rural population. The shift in population from ruralto urban will particularly impact service provision in the bush and rural areas ofQueensland. Unless there are local residents, there will be no local volunteers andRural Operations will become increasingly challenged. There is a small reversal of thepopulation drift, known colloquially as the ‘tree change’ phenomenon. This placespressure on some rural communities who may experience an increase in populationand a subsequent demand on the community service; however the age groupundertaking this drift are not always optimum for volunteer service.82 Foundations of Queensland Fire and Rescue

• Environmental concerns. There is increasing awareness and accountability for theenvironment. Environmental protection standards have been made more stringentin recent years and will continue to be monitored and applied regardless of theemergency. At the national level, the Environment Protection and BiodiversityConservation Act (EPBC) 1999 set a benchmark for environmental protection andmanagement in Australia. The Act duly recognises that state legislation has primacyand therefore all state employees are subject to compliance with the legislation. Statelegislation is wide ranging in its scope and binds all agencies and their personnelto assessing the potential for environmental impacts and risks associated with theiractivities, regardless of their location or circumstance. This requires greater control ofprocedures specifically when dealing with:• smoke management and water run-off from urbanfires and HazMat incidents;• national and international protocols concerningarchaeological, cultural and heritage sites, buildingsand artefacts;• clearance of flora and fauna for vehicle movementand clearance of small areas for health and safetyrequirements. This clearance is permitted duringincidents. Clearance for training purposes or of largeareas, such as for temporary site headquarters mustbe approved through operational channels, incompliance with the state acts;• hazardous materials, which are maintained and stored in accordance with theappropriate state directives and Material Safety Data Sheets (MSDS);• hazardous waste, such as oily waste and batteries, which is not to be disposed of inor on the ground, or in any waterway. These wastes must be collected in containers bythe agency responsible and transported to an established collection point; and• major incident sites, which must have a spill prevention or response plan.Chapter 5Foundations of Queensland Fire and Rescue 83

Chapter 5Wherever you are operating in the state, you are subject to environmental compliancelaws.Technology. Technologies that cover communications, information management anddecentralised operations, plus those that automate office procedures, are likely to be apositive influence on fire and rescue capability in the future but they come at a financialand training cost.QFRS firefighters are adaptable and technologically proficient at managing the increasingrange of emergency incidents. However there may be times when QFRS will need todraw on expertise either from other agencies or commercial entities to manage, monitorand help coordinate complex situations or industry specific incidents. Technologiesthat exploit the use of technical expertise and allow incident site awareness to be doneremotely, without compromising command and control of incident sites, are beingpursued as part of an overall investment strategy in the future.Preparing for future trends. QFRS must be aware of the influences on capability as itadapts to utilising existing resources and investigating future opportunities to its bestadvantage. QFRS firefighters of the future will be those who remain flexible, willing toembrace change, and yet retain those fundamental characteristics of reliability andcourage expected of them. QFRS has a responsibility to government and the communityto evolve, adapt and respond to change.84 Foundations of Queensland Fire and Rescue

Evolution rather than revolution. Firefighting in the future is anticipated to evolve ratherthan undergo significant revolution. Regrettably there will always be a need for anemergency service to respond to emergency incidents, but with a greater emphasis onreducing the risk, fewer emergency events are likely to occur. More time will be spentteaching the community how to reduce risk, rather than responding to incidents andconsequence management once an emergency event has occurred. This trend has alreadycommenced with the majority of firefighter time spent interacting with workplaces andcommunity members – particularly the aged, the infirm and children – making themaware of the risks they face and what actions they need to take to reduce the likelihood ofemergencies occurring.Urban firefighting. While firefighters remain as skilled and competent as they alwayshave been, more training to maintain competency levels will be required, as there willbe fewer fires where competencies are practised and tested. Attendance at false alarmswill be rare due to improved technology. Automated detection and suppression systemsin homes as well as public buildings, will reduce urban fire occurrence. Firefightingresources are likely to be increasingly mobile, moving to where the assessed risk isgreatest during a single shift – from city centres in the day to dormitory suburbs atnight. The fleet of firefighting appliances may include a greater variety of appliances,enabling access to increasingly complex sites. As the numbers of emergency calls arereduced, ambulance officers and firefighters will share workplace accommodation. Manyfirefighters will be qualified as ‘first responders’ to provide emergency medical support toparamedics from QAS.Chapter 5Foundations of Queensland Fire and Rescue 85

Chapter 5Rural firefighting. Rural firefighters will continue to face bushfires caused by lightning,arson and careless actions. Fire detection on public land in the future is likely to be byremote sensors and imagery from satellites, while local landholders can be expected tocontinue to report fires on their own or neighbouring properties. Aircraft response is likelyto be more common, using larger, faster airframes that carry greater quantities of water ormore efficient fire retardants. However, the necessity to attend rural fires on the ground,to manage the fire response and physically put out the fire will remain. Methodology andpractices are likely to have been developed, that demand less people on the ground toachieve the same tasks undertaken today by rural firefighters. The integration of locallyavailable urban and rural firefighters to treat major incidents has some compellingadvantages, but requires analysis, refinement and adjustments to make it work.Greater understanding of fire regimes. Prescribed burning will continue to occur andalthough this remains of limited value during extreme fire events, it has proven of greateruse in limiting the spread of bushfires when fire conditions are less severe. The iZonecan be expected to continue to expand significantly and remains the area of greatestconcern and potential loss. Understanding of fire regimes will be heightened, leading toimproved management of fire across landscapes. The impact of fire on the environmentwill be better understood and fire will continue to be used as an effective tool for ruralland management.Shaping the future to a broader view. Being a QFRS firefighter in the future is likely toinvolve fighting fires and conducting rescues anywhere in Australia or overseas. Thereis the potential for full-time, auxiliary and volunteer firefighters to be integrated within aunified framework that benefits from their combined strengths. Depending on seasonaland operational demands, numbers of firefighters may fluctuate from one station toanother to meet assessed risks and operational demands. This will be driven by ongoingefficiencies and QFRS remaining excellent value for money. QFRS is shaping its ownfuture, through being closely aligned to the needs of the DES and state government, andclosely attuned to the demands and expectations of the communities it serves. For thefirefighters the future will be much the same as the present, in that every call-out is anexperience and every experience is different.Zero Harm Policy. ‘ZEROharm - all injuries are preventable’ is the mission statement ofthe Workplace Health & Safety Strategy 2007- 2010. ZEROharm is based on the beliefthat workplace injuries and illnesses are preventable, and ensures that everyday, allemployees, volunteers and contractors return home everyday to their families and lovedones, free of injury and illness. ZEROharm is a commitment to safety – to actively identifyhazards, report incidents and control the risks present in everything you do. It means you‘think safety’ and ‘act safely’, to protect yourself and your work colleagues, and to makeyour work place safer.86 Foundations of Queensland Fire and Rescue

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© State of Queensland(Represented by the Queensland Fire and Rescue Service) 2008Copyright protects this publication. Except for the purposes permitted by the Copyright Act,reproduction by whatever means is prohibited without prior written permission of theState of Queensland (represented by the Queensland Fire and Rescue Service).Enquiries should be addressed to:Commissioner - Queensland Fire and Rescue ServiceGPO Box 1425 - Brisbane Qld 4001www.fire.qld.gov.au