2.1
The following chapter reviews some of the key issues which were raised by stakeholders and have been examined by the committee, particularly during the initial stages of its inquiry. It also summarises the key recommendations made by the committee in its interim report.
2.2
The chapter also provides the background to the Royal Commission’s inquiry and summarises its key findings, and the recommendations made in its final report. It also summarises the Federal Government’s response to the findings and recommendations made by both the committee and the Royal Commission.
Bushfire inquiries
2.3
The 2019-20 bushfire season has been the subject of a number of reviews and inquiries. In addition to the evidence collected during its own inquiry, the committee has had access to the evidence and information contained in these reviews and reports. Some of these investigations focused on particular issues and did not involve wide public participation, while others involved submission processes and hearings. The committee specifically acknowledges those conducted by state and territory governments.
2.4
The NSW Government established the NSW Bushfire Inquiry, an independent inquiry led by former Deputy Commissioner of NSW Policy, Dave Owens and former NSW Chief Scientist and Engineer, Professor Mary O’Kane. The final report of the NSW inquiry was released on 25 August 2021. Victoria’s Inspector-General Emergency Management conducted an inquiry into the 2019-20 Victorian fire season, with a final report provided on 30 July 2021.
2.5
The Queensland Bushfires Review 2019-20 was undertaken by Queensland’s Inspector-General Emergency Management, and the final report of the review was released on 20 February 2020. In January 2020, the South Australian Government established the Independent Review into South Australia’s 2019-20 Bushfire Season. The report in relation to the South Australian review was released in June 2020.
2.6
The Australian Capital Territory government also released three reports during 2020. These reports were largely focused on the operational responses of emergency services.
2.7
In addition to the state and territory government reports, the committee has also been able to access the findings of the National Bushfire and Climate Summit 2020 and the reports presented by the Royal Commission into National Natural Disaster Arrangements.
Committee’s interim report
2.8
On 7 October 2020, the committee tabled an interim report which presented the committee’s preliminary findings regarding the 2019-20 bushfire season. The committee’s interim report:
examined Australia’s existing national natural disaster management arrangements – in particular, the interaction between the Commonwealth and the states and territories;
considered the actions of the Government in the lead up to the 2019-20 bushfire season and presented some of the evidence received regarding the role of hazard reduction;
examined both the physical and mental health impacts of the bushfires, and the implementation of various health measures to address the impact of the 2019-20 bushfire season;
commented on the impact of the bushfires on Australia’s wildlife, including the need for effective wildlife and environmental rehabilitation programs;
examined Australia’s aerial firefighting capacity and funding arrangements, including its capacity in the lead up to the 2019-20 bushfire season;
described the role of the insurance industry – including its role in mitigating the risks of natural disasters, and the actions that have been (or will be) taken by the industry, both for policy-holders, and in relation to emissions reduction and mitigation;
explored the role of clear communication during an emergency, including via community and commercial radio and identified areas for improvement in emergency communication systems and frameworks; and
considered the forecasts for coming bushfire seasons – including the role of ongoing mitigation.
2.9
The committee’s interim report contained 13 recommendations. Several of these recommendations related to funding, financial assistance and reporting requirements – in relation to the National Bushfire Recovery Fund (NBRF), Disaster Recovery Funding Arrangements, the Emergency Response Fund, the Australian Government Disaster Recovery Payment, and the Disaster Recovery Allowance.
2.10
The committee also made recommendations in relation to health funding: for research into the health impacts of unhealthy and hazardous levels of bushfire smoke, as well as permanent mental health support services.
2.11
Recommendations were also made about the need to research (and monitor) the impact climate change and severe weather events are having on the insurance industry - particularly in relation to the sector’s financial vulnerability and the increasing cost of premiums.
2.12
In the area of communication, the committee recommended that the ABC be provided with an appropriate level of funding for its emergency broadcast services, and that the development of the Australian Warning System and the Australian Fire Danger Rating System be completed as a matter of priority.
2.13
Further, it was recommended that the Commonwealth develop a business case which would progress the establishment of a permanent, sovereign aerial firefighting fleet.
2.14
A full list of the committee’s recommendations made in its interim report can be found at Appendix 3.
2.15
The committee notes that its interim report was a significant body of work, with recommendations to best address the most pressing issues following the 2019-20 bushfire season. The committee suggests that its interim report and this current report are best considered together.
2.16
In this current report, the committee will consider the matters which have been raised in the previous 12 months, most importantly the ongoing impact of the bushfires on local communities and their mental wellbeing, as well as community-led recovery and issues in relation to accessing grant funding.
Government response to committee’s interim report
2.17
The committee received the Federal Government’s response to its interim report in May 2021. The Government indicated support for recommendations in relation to the review of the Disaster Recovery Funding Arrangements (DRFA), and the release of funding for mitigation projects through the Emergency Response Fund (ERF). The Government also indicated it ‘supported in principle’ the recommendation for research into the health impacts of bushfire smoke. The remainder of the recommendations were ‘noted’ by the Government.
Royal Commission into National Natural Disaster Arrangements
2.18
Since the 1927 Royal Commission into bushfires in New South Wales, more than 240 formal inquiries and reviews have been conducted into natural disasters: most commonly fires. While these inquiries varied in their form and focus, their primary purpose was to identify the causes of these disasters and examine their consequences.
2.19
While it was acknowledged that the 2019-20 fires were not the first to cross state borders, it has been noted that “their impact on the environment and Australian communities was the most extensive in living memory”. In the wake of the 2019-20 bushfires, the jurisdictions of New South Wales, Victoria, South Australia, Queensland and the Australian Capital Territory undertook their own inquiries.
2.20
The 2019-20 bushfire season was also the catalyst for a Royal Commission. The Royal Commission into National Natural Disaster Arrangements (Royal Commission) – also known as the Bushfires Royal Commission – was established on 20 February 2020.
2.21
Appointed to Chair the Inquiry, Air Chief Marshal Mark Binskin, AC (Retd), was joined by two other Royal Commissioners: the Hon. Dr Annabelle Bennett, AC SC and Professor Andrew Macintosh.
2.22
The terms of reference for the Royal Commission were broad, and directed Commissioners to examine a range of issues, including:
the responsibilities of, and coordination between, Australian, state, territory and local governments relating to natural disasters;
Australia’s arrangements for improving resilience and adapting to changing climatic conditions;
what actions should be taken to mitigate the impacts of natural disasters; and
whether changes are needed to Australia’s legal framework for the involvement of the Commonwealth in responding to national emergencies.
2.23
In undertaking its inquiry, the Royal Commission noted that while a number of inquiries had examined particular disasters or the emergency management arrangements of one state, the Royal Commission was the first to focus on natural disasters from a national perspective. The inquiry focused on national natural disaster coordination and accountability arrangements and on identifying improvements to national arrangements, with a view to making Australia more resilient to natural disasters.
2.24
The Royal Commission’s final report, which was tabled in Parliament on 30 October 2020, contained 80 recommendations. Central to the Royal Commission’s recommendations was the call for a national approach to natural disaster arrangements – including a greater role for the Commonwealth Government. It was recommended that the states and territories should retain primary responsibility for protecting life, property and the environment within their own jurisdictions. In recognition of the need for a whole-of-nation effort, on multiple fronts, it was recommended that the Commonwealth should take the lead in building resilience, coordinating greater resource sharing, improving national data collection and supporting individuals and communities to understand and manage the disaster risks within their control.
Government response to Royal Commission recommendations
2.25
On 13 November 2020, the Federal Government announced support (or support in principle) for most of the 55 recommendations directed at Government. The recommendations centred around:
national coordination arrangements;
improvements to collection and sharing of national disaster risk data;
enabling the Federal Government to declare a national state of emergency;
a national register of fire and emergency services personnel and equipment;
a public safety mobile broadband capability;
employment protections for volunteers;
an increased role for the Australian Defence Force;
a supply chain review to ensure supply of essential goods during natural disasters;
an Australian Fire Danger Rating System;
national air quality monitoring and forecasting;
Indigenous land and fire management;
land use planning and building regulation (to address natural hazards risks);
a single national scheme for regulation of charitable fundraising; and
nationally consistent delivery of recovery services and financial assistance.
Additional measures
2.26
In responding to the Royal Commission’s recommendations, the Federal Government also announced that it would be implementing a number of additional measures. The key measures included:
Power to declare a national emergency: the Royal Commission found that the Commonwealth should have the power to declare a state of national emergency – and that this power should be supported by clear legislation. The Federal Government agreed to prepare legislation which it is proposed to progress over several phases. The legislation will establish the declaration power, and focus on streamlining the exercise of existing Commonwealth powers to support the rapid response to, and recovery from, a national emergency.
National Resilience, Relief and Recovery Agency: the Royal Commission recommended the government establish a national resilience, relief and recovery agency to drive long-term resilience policy outcomes, and be responsible for the Federal Government’s disaster recovery work. On 5 May 2021, the Australian Government launched the National Recovery and Resilience Agency (NRRA). It is proposed that the new agency will assist communities with relief and recovery efforts following large-scale disasters and provide advice to government on managing the impact of future disaster events.
Coordination arrangements within Emergency Management Australia (EMA): The Royal Commission called for the responsibilities of the EMA to be enhanced. The Federal Government responded by indicating that the national coordination arrangements within EMA would be strengthened to streamline requests for Commonwealth assets to assist states and territories in their preparation and response to disasters.
Resilience Services: The Royal Commission also recommended that the Federal Government play a national leadership role in coordinating national data, information and standard setting. The Government agreed with the Royal Commission’s assessment, and acknowledged the need for greater harmonisation and transparency in how jurisdictions collect, share and use data and information in relation to natural disasters and climate risk. In November 2020, the Government announced that a Resilience Services function would be set up to provide EMA and the new NRRA with climate and disaster risk information and services. It was also proposed that Resilience Services would better connect and coordinate the data, information and capabilities of organisations such as the Bureau of Meteorology, the CSIRO, Geoscience Australia and the Australian Bureau of Statistics.