Roger Underwood

“There is an old saying that one of the greatest of human failings is the inability to learn from the mistakes of others. One example is that of my 2-year old grandson who, despite being warned, could not resist testing the heat of the stove, and got his fingers burned. I have noted an identical situation in the attempts at bushfire management by Australia’s new generation of forest managers.

Yet while the new managers have suffered a lot of burned fingers over the last ten years, strangely they do not seem to be learning from it. There are three simple lessons which could be learned: First, the current approach to bushfire management is not working. Second, the current approach has been tried before and it didn’t work then either. And third, there are still a lot of people around who know all this, from whose first-hand experience much could be learned.

Another well-known aphorism tells us that those who do not study history are condemned to repeat it.

Sadly, when it comes to bushfire management in Australia, I see history repeating itself continuously, and even worse, because of recent changes in our forest management environment, the outlook is for more of the same. And its not just fingers getting burned. Every year over the last ten, the nation’s forests, farmlands and even suburbs have been ravaged by large, high intensity fires. The damage from these fires, the wastage, the loss of resources and the economic and ecological costs have been astronomical. There have also been great but immeasurable psychological impacts on the people in the bush who have suffered from the fires, or who have been forced to turn out, over and over again, to fight them.

The sorriest aspect is that it is all so needless. It is not as if we Australians are brand new settlers in this country, still feeling our way and guided by imported European philosophies, immature science, inexperience of the bush or impractical ideologies.

Or are we? Consider the response from officialdom to the 2003, 2004, 2005, 2006 and 2007 fires. Our State governments and agencies are in denial, as witnessed by that monumental whitewash known as the Esplin Report, and by the refusal of State Premiers to adopt the excellent motion put to them by Senator Abetz recently. Consider a recent public statement of the Chief Officer of the NSW Rural Fire Service: he claimed there was no new serious bushfire problem in Australia, it is all a beat-up by the media. Consider the way the ACT government blamed the 2003 fires on God, while the WA government blamed the disastrous fire at Mundaring Weir on an arsonist.

Meanwhile, the Emergency Services lobby is renewing its calls for ever more expensive and sophisticated equipment and suppression forces, the environmentalists are blaming Global Warming, while the intellectual leadership and credibility of our academics continues to decline. The darling of the greens, academic Robert Whelan, for example has publicly argued against fuel reduction burning, while influential Canberra ecologist Richard Norris claims that the answer to the bushfire problem is simply to take people away from areas where bushfires occur, or make them live in fireproof structures. How he believes that this policy could be achieved in regional Victoria, southwestern WA, the urban fringe of Sydney, or in Tasmania, he does not explain.

If all of these people were less driven by politics or ideology, or if they actually knew something about bushfires or were required to design and implement a bushfire management system and then be accountable for the results, or even if they were prepared to make a serious study of the history of bushfire management in this country, they might have a very different view.

The fact is that large high intensity bushfires result from failed land management. Like a disease epidemic, they are incubated over several years during which preventative medicine could have been applied, but was not.

We are not brand new settlers on this continent. Australian land managers, land owners, foresters and rural workers have been confronting the threat of bushfires for over 200 years, and wildland fire has been the subject of very high quality scientific research over the last 50.

This experience and science have revealed that there are three basic alternative approaches to bushfire management: you can let fires burn, you can try to suppress them, or you can try to replace “feral” fires with controlled fires. All of these approaches are applicable and appropriate singly or in combination in different parts of the country. The trick is to get the most effective mixture for a particular place at a particular time.

To look at each of these briefly:

• In the Let-burn approach nature is assumed to know best, and fires are left to burn to their heart’s content, to go out eventually if they run into last year’s fire, or to be extinguished at the onset of the rainy season or tackled at the edge of the bush if human assets are threatened. By force of circumstances, the let-burn approach is appropriate for bushfires in the remote lands of central Australia and most of the rangelands where access is poor and there are few people or threatened assets. The trouble is that this approach is now advocated by environmentalists for application to our high rainfall forest country. Those who advocate this, it should be noted, mostly live well inside surburbia, are not threatened by fires, do not have to fight them and cannot be held legally accountable for the outcome of such a policy. No government can afford to adopt the let-burn approach for the more populous forest and agricultural regions, at least not officially, although the Victorian government came very close to it a few months ago when it withdrew firefighters from the bush to protect towns.

The two biggest problems with the let-burn approach are (i) fires burning out of heavy forest country can be unstoppable when they reach the edge of the bush; and (ii) under Common Law a token effort must always be made by the land owner or manager to suppress wildfires, because not to do so lays them open to legal action.

• The second alternative approach is the All-out Suppression approach. This requires fires to be attacked immediately after detection, using the resources of an emergency service, or “fire brigade” set up for the purpose. This approach originated in the cities of Europe in the middle ages, and was exemplified by the drama of the ringing alarm bells, galloping horse-drawn fire engines and magnificently uniformed and helmeted firefighters. The current image is equally theatrical, with water bombers and helitaks sweeping the smoky skies, convoys of tankers filing along country roads, and brilliantly uniformed Fire Chiefs being interviewed on television by breathless reporters.

The all-out suppression approach is appropriate in cities, where there are permanent firefighters on standby 24 hours a day who are able to get to any fire within minutes. In earlier days in rural Australia the suppression approach was implemented by volunteer brigades of farmers and bushworkers, and was largely successful in developed farmland and country towns.

However, in rural Australia these days the networks of small self-funded local bushfire brigades have morphed into highly sophisticated paramilitary organisations such as the CFA and the NSW RFS, complete with their decision-making headquarters in the city and their armies and airforces. Increasingly they are being expected to fight full-scale forest fires. This is partly because of the loss of experienced full time agency firefighters and also the loss of firefighters from the former hardwood timber industry who were once the frontline troops in any forest fire.

But the main reason is that the all-out Suppression Approach is fast becoming the dominant philosophy in most of Australia, especially NSW and Victoria.

The amazing thing about this is that it flies in the face of practical experience and bushfire science. This approach does not and cannot work in Australian eucalypt forests unless it is supplemented by other measures (discussed below). Fires on hot windy summer days in long unburnt forests simply cannot be put out by humans, no matter how many, how courageous and how hard they work and how good their technology. Even under relatively mild conditions, the intensity of fires burning in fuels over about 10 tonnes per hectare is simply too great to allow them to be attacked successfully. The 2007 Victorian fires demonstrated that the entire firefighting resources of Australia, plus international assistance from NZ, Canada and the USA, were inadequate.

This is a situation which was once well understood by Australian forest managers. Which is why in the 1950s there was a general move to adopt a third approach – the substitution of controlled mild fire for uncontrolled high intensity wildfire.

• I call this the green burning approach. It recognises two simple facts: Firstly, that bushfires cannot be prevented – even if we eliminated all mankind from the forest, there would still be lightning. And second, periodic mild, patchy fires prevent the build-up of heavy fuels, so that when a fire does start it is easier and safer to suppress, does less damage, and costs less. A regime of green burning also produces a healthier and more vigorous forest and is better for biodiversity. This approach was applied rigorously in many Australian forests for nearly 30 years, with tremendous success. Unfortunately since about the 1980s green burning has been under constant attack from environmentalists and academics. As a result, in Victoria and New South Wales, especially in forests which are now national parks, almost no effective prescribed burning is done. Even in WA, where green burning was once championed and is still applied, the area burnt each year has now fallen well below that required to ensure an effective fire management system. Here the annual burning target is 8% of the forest – simple arithmetic allows you to calculate that this equates to a turn-around time of 12 years, which in the jarrah forest is nearly twice the recommended burning rotation length if summer wildfires are to be manageable. The anti-burners have achieved this irresponsible situation not through special expertise in fire prevention or suppression, not through being able to put in place an alternative and equally effective system, but simply by gaining control of government policy and by the capture of the new forest management agencies.

There are two other problems, which I will mention only briefly…..

Opposition to prescribed burning has been accompanied by two further problems in the forest: a decline in the standard of road and fire trail maintenance – in some cases due to lack of funds, in other cases as a result of deliberate policy – and fewer permanent agency staff in the bush. The first of these factors has meant it is harder for firefighters to get to fires; the second has meant an increasing reliance on volunteers and on part-time and less experienced firefighters. In WA, as in other States, the government has newly established a large Wilderness Area in the forest, and within this area they are busy closing down roads. This is done in the full knowledge that it will make firefighting more difficult and dangerous.

What Can be Done?

My experience is revealing. I am the Chairman of a small independent group in WA called the Bushfire Front, and for nearly 5 years we have tried to influence government policy by logic, science and the weight of our >400 years cumulative wisdom and practical experience in all aspects of bushfire management. We have had one meeting with the Premier and numerous meetings with many Ministers and senior agency staff and have made dozens of submissions and presentations. The result is that we have moved from getting the cold shoulder (where we were simply ignored) to getting the warm shoulder (where they agree with us, but do nothing). The government feels very comfortable about this response because we pack no political punch. Ministers and agency bosses know where the real political clout lies. This is with the green pressure groups who control voting preferences and thus are able to determine government forestry policy.

In fact the green influence extends beyond policy to management plans and to bureaucratic regulation, including the imposition of ludicrous constraints on the burning program. No forester can undertake a prescribed burn in WA these days without filling in a 73-page document, running a public consultation program and then obtaining the signatures and approval of nine separate senior departmental mandarins, most of whom know nothing about fire. Finally, completed burns are subjected to a costly environmental audit which focuses on bureaucratic trivia, not fire control effectiveness. All of this, it seems to us, is deliberately designed to discourage burning and to make it harder for field staff to accomplish an effective fuel reduction program.

One of the greatest ironies of them all is that the department’s own ecological research has shown conclusively that biodiversity and forest conservation are enhanced by frequent mild fires, while large fierce fires cause enormous forest and environmental damage. A single hot wildfire near Mundaring Weir two years ago was found to have killed ten million mature jarrah, marri and wandoo trees. Yet this produced no change in the department’s fire management approach, nor was there a peep of concern from the environmentalists.

The most the Bushfire Front can say we have achieved is that we are well positioned to produce evidence of our warnings and the way these have been ignored to the inevitable Royal Commission after the inevitable bushfire disaster. This will give us no satisfaction.

Similarly we have had almost no success in motivating the media over the issue. We have found that journalists are interested in bushfires only as sensational disasters and theatrical drama; they find issues like damage mitigation and bushfire preparedness boring and un-newsworthy.

I am well aware that our forest managers today must operate in a greatly changed environment to that in which I worked 15 years ago. Here I am not referring to the hysteria about global warming. The big change is that bushfire management has moved from the business of land management to the business of politics. In the business of politics, history, science, practical experience, wisdom and logic seem to count for nothing.

In my opinion, until the voice of the bush is heard more loudly than the voice of the urban greens and impractical academics this situation will not change. We will continue to be unable to expose the policy vacuum, the flawed ideology, the lack of leadership and incompetent governance which characterise the current approach to bushfire management in this country.

There is one bright light on the horizon: this is the possibility that the Federal Government will become more involved, and will institute a new system in which the States are financially penalised for failed bushfire policies and management, rather than being rewarded as at present. I welcome the leadership in this area being shown by Eric Abetz, Garry Nairn, Stewart McArthur and one or two others in the Federal parliament, and commend to them the simple template for Best Practice in Bushfire Management which we have developed.

In conclusion, Australia does not need more helitaks, more water bombers, more infra-red gizmos or more overseas firefighters. What is needed is a fundamental change in bushfire philosophy and governance. Forest managing agencies and fire services must shift their focus from suppressing running fires to the critical long-term work of pre-emptive and responsible land management. Their job is to make the task of the firefighter easier and safer, not harder and more dangerous. Arson, Acts of God and possible Global Warming can all be anticipated and steps can be taken to minimise their impact. We know what to do and how to do it.

Finally, I would like to return to my theme about the lessons from history. At a conference of forestry officers in Perth in 1923, the Conservator Stephen Kessell was laying down his philosophy to departmental staff. Preventing large high intensity forest fires, he said, is the most fundamental requirement for forest conservation in Australia. Kessell recognised that without effective bushfire management, no other management outcomes can be achieved.

It’s that simple. Sadly, 80 years later, many of the people who today are responsible for conserving Australia’s forests have not yet grasped this fact. They fiddle, while Australia burns.”

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This is an edited version of ‘Bushfire management in Australian forests – confronting a changing environment’ a paper by Roger Underwood presented to the Timber Communities of Australia conference in Perth, Western Australia, April 2007.

It is only February, but 2006/7 is already shaping as one of Australia’s worst bushfire seasons. The extraordinary fires in Victoria have captured the headlines, but there have also been big, intense and damaging bushfires in Tasmania, West Australia, New South Wales and Queensland. These succeed the shocking fires in eastern and south-western Australia every summer over the last 5 years.

There are many interesting issues relating to this new prevalence of big, nasty bushfires. Bushfire management in Australia reached its peak between about 1975-1990. But despite all the technical innovations since then, the huge expenditure on aerial water bombers and the vast armies of fire fighters with their wondrous equipment, bushfire management in Australia has regressed to the situation that prevailed in the 1950s and 1960s. In other words, whenever bad fire weather occurs, unstoppable fires ravage the bush.

It is also curious how the recent disasters have come to be accompanied by a spirit of defeatism amongst our leaders. Bushfires, it seems, are an Act of God, a natural phenomenon which cannot be prevented. Lie back and think of England!

This line of thinking is not just an example of gutless leadership, it is logically flawed and flies in the face of decades of research into bushfire science and centuries of human experience. What is going on?

I was once advised by a grizzled public servant of the old school “if you want to understand any puzzling social or political issue, look for the beneficiaries.” Who on earth might benefit from the regular occurrence of huge, hot bushfires?

While the correct answer is “no-one” it is not hard to find people who use the big hot fire to their political or financial advantage. For example I have heard environmentalists portraying the recent fires in Victoria and WA as a direct consequence of global warming. They quite unambiguously assert that unless we unquestioningly adopt their political agenda on climate change, there will be more horrible bushfires. This can easily be shown to be crooked thinking, but it is an effective line because of the current hysteria about global warming.

The media can be seen as a beneficiary of big nasty bushfires as these provide highly newsworthy, truly front page or top-of-the-bulletin stuff. Journalists are served up with wonderful hero stories, disaster stories and controversy stories on a plate. Bushfires are tremendous drama, complete with cataclysmic vision of houses and forests going up in flames, farmers shooting burnt sheep, sad people raking through the remnants of their houses picking up twisted trinkets, hillsides of blackened forest. To the media (and of course to their clients the viewers and readers), big hot fires arouse intense interest and excitement; few things outside war provide more opportunities to exploit the gamut of human emotions or to experience them vicariously.

Then there are the Fire Chiefs, resplendent in their American World War 2 General’s uniform. “Bushfire management” these days has largely morphed into “bushfire fighting”, a thrilling battle to be fought by Emergency Services staff who have been waiting in the wings for this very moment. I am not criticising our top Firemen. They are doing the job they are appointed to do and all would be equally dismayed by the human misery and environmental damage caused by intense bushfires. Nevertheless, when the Big Fire declares war, their 15 minutes of fame arrives. The regiments of firefighters are amassed and despatched; the squadrons of bombers and helicopters are unleashed; the support and technical units are rushed to the battle. Fire Chiefs are nightly seen on the news giving high profile briefings to politicians and the media, planning strategies and dictating the tactics at the front. This is war, and war is hell. But war is also The General’s Big Moment, his hour upon centre stage.

I also wonder about the money, and who gets it. Bushfire fighting in Australia has become horrendously expensive. In particular, unbelievable sums are spent hiring aerial equipment and firefighters from overseas. I am convinced that if the money spent hiring overseas equipment and importing (and paying) inexperienced overseas firefighters was channelled instead into re-creating the permanent force of firefighters who once occupied the nation’s forest districts, we would be financially better off and have a superior fire management system.

Bushfire research is another interesting and complex issue. There is a considerable band of academics in Australian universities who are associated with and at least partly funded by the Bushfire CRC. None of these people like to see people and houses being burnt, but they all know that every big, nasty fire helps to underpin the security of their research grants, guarantee future funding and ensure desirable academic side-effects such as overseas conferences, publishable papers, and graduate students.

Finally there are those politicians who have learned how to make a name for themselves from a bushfire. They do this by the generous authorisation of huge sums of money for suppression at the very height of the fire, turning up at the control point and shaking the hands of smoke-grimed firefighters, commiserating with people who have lost everything, and looking grave but intelligent in a media briefing. After the fire they disperse largess from the government coffers to compensate those of their constituents who have been burnt-out, and promise more money for fire fighting equipment and research.

I am by no means saying that these “beneficiaries” are the cause of the disastrous decline in the standard of bushfire management in Australia over the last 15 years. We are all to blame for the inept political leadership and government dysfunction which are at the root of the problem.

What really worries me is that while God and Global Warming are cast as the villains, nothing will change. It just means that sensible investment in programs of bushfire prevention and preparedness, damage mitigation and community education continue to be set aside in favour of a self-fulfilling prophecy of apocalypse. Those who support (for example) an effective level of prescribed burning in the national parks, can safely be ignored. God and Western Civilisation are ordaining killer bushfires and we can do nothing about it! The fire and brimstone prophets of the Old Testament are back on the job.

by Roger Underwood
Perth, Western Australia

Roger is a former General Manager of CALM in Western Australia, a regional and district manager, a research manager and bushfire specialist. Roger currently directs a consultancy practice with a focus on bushfire management. He lives in Perth, Western Australia.

I wonder how many Koalas have been burnt in the bushfires raging across Victoria?

I received a letter from Roger Underwood today, he writes, “Arsonists do light fires, but they are not responsible for fires becoming large and damaging, especially forest fires. Blaming them is a convenient way for politicians and land managers to avoid taking responsibility themselves, which they should.”

Roger Underwood has over 40 years experience of bushfire management in Australia and overseas. He was formerly General Manager of The Deparment of Conservation and Land Management (CALM) in Western Australia, a regional and district manager, a research manager and bushfire specialist.

Dear Jennifer

I have been watching TV and reading newspaper reports on the recent (and ongoing) disastrous bushfires in Victoria and Western Australia. One common thread is the attempt to blame “arsonists, thought to be responsible for the fires”.

There are two non-debatable things about arson: (i) it has always been with us and will always be with us, as it is an expression of anti-social, criminal or sick human behaviour; and (ii) since arson-lit fires cannot be prevented, we should expect them to occur and take the necessary measures to minimise their impact, not whinge about them.

The ultimate irony to me was to see our Acting Premier promising large sums of money as a reward for information about the supposed arsonist, when the government in which he is a Minister has overseen a massive decline in the capacity of the State’s bushfire management resources.

Bushfires cannot be prevented.

On the other hand we can predict with great accuracy where and when they will occur and we can put in place very effective measures to minimise the damage they cause, and to increase the ease and safety of their control. In the publicly-owned forest, these measures are relatively simple.

In the first place we need a sound policy, and the strong support of government and agencies – this is a matter of simple, good governance and responsible public service.

In the second place we need a resource of permanent well trained and well equipped staff who can undertake fire management, supported by a well-funded volunteer firefighter force. Third, we need effective programs of green burning in our parks and forests, to reduce fuels and to ensure that fires do not become large, intense and unstoppable. Finally we need rural people, including those living at the interface, to take responsibility for making their own properties less hazardous or vulnerable, and if they won’t do it voluntarilly, they must be forced to do it compulsorily.

None of this is new. But for some reason it does not happen. Worse, we seem to be going backwards. I agree with those who blame the environmentalists for antagonism or fear of green burning – they have very successfully created a generation of young people who do not understand the role of fire in Australian ecosystems – but they are not solely to blame.

The political leaders who show no leadership, or who try to slip out from under by blaming the arsonists are also contemptible, but politicians are politicians, and we cannot expect them to behave out of character. I am also very disappointed with some of the new breed of braided Fire Chiefs who tend to see bushfires as theatre, and whose media popularity would be threatened by a fire management system which resulted in fewer fire disasters. But these people are simply a product of the media-dominated world in which we live,and they won’t go away any more than will the arsonists.

I conclude that the real villains in the piece are our professional land managers – the people who are today in charge of our national parks and State forests. They are well aware of the ecological research, they know about the decline in forest health in areas subjected to fire exclusion, they have staff in the field who are skilled in and enthusiastic about green burning, they have media and communications units, and they are in a position to influence government policy and priorities, to fight for a position which is right, even if it is politically unpopular. But they do not appear to be prepared to fight for good and effective fire management, and the result is an increasing number of large, high intensity fires which do no-one any good, and cause immense environmental damage.

The situation in WA is made more difficult by the fact that our land management agency (CALM) is not responsible for preparing the park and forest management plans which they are required to implement. The government has placed responsibilityfor management planning in the hands of a part-time committee of citizens and academics called The Conservation Commission, not one single member of which has any scientific expertise or professional experience in bushfire management or forest firefighting.

A thousand new arson detectives in every state will not catch every arsonist or potential arsonist, nor will they stop arson occurring in the future. What is needed is a new breed of tough, dedicated professional land managers who accept arson as inevitable, like lightning, and work to put in place a system which ensures that when fires start we can deal with them before people are killed, lovely forests incinerated and farms destroyed. What the government needs to do is to put these people in charge, chop off the influence of committees of well-meaning amateurs, and provide policy and political support.

Will this happen? The Bushfire Front developed a template for Best Practice in Bushfire Management in WA which, in early 2005, we sent to the Premier and the Minister for the Environment, together with an analysis of where WA needed to take steps to halt the decline in the standard of fire management, and to get the whole show back on the road. This submission was the outcome of several months work by experienced bushfire managers and former fire scientists. Neither the Premier nor the Minister replied.

Roger Underwood
The Bushfire Front WA Inc