Planning For Bush Fire Protection 2019 - NSW RFS
PLANNING FORBUSH FIRE PROTECTIONA guide for councils, planners,fire authorities and developersNOVEMBER 2019
State of New South Wales through the NSW RURAL FIRE SERVICE 2019ISBN 978-0-646-99126-9The NSW RURAL FIRE SERVICE (NSW RFS) encourages the availability, dissemination and exchange of public information. You maycopy, distribute, display, download and otherwise freely deal with this material for personal, in-house or non‑commercial use, on thecondition that you include the copyright notice State of New South Wales through the NSW RURAL FIRE SERVICE 2019 on all suchuses. In the event that you wish to copy, distribute, display, download, store, or use this material for a purpose other than personal,in‑house or non-commercial use, you must obtain permission from the NSW RFS by writing to the following address:CommissionerNSW RURAL FIRE SERVICELocked Mall Bag 17Granville NSW 2142DISCLAIMER STATEMENTWhile the material within this publication is current at the time of writing changes in circumstances after the time of publication mayimpact on the accuracy of the material. Individuals are responsible for ensuring they have the most current version of this publication.The information and material contained herein is general in nature and is intended for your use and information. The New South WalesRural Fire Service (NSW RFS) disclaims, to the extent permitted by law, all warranties, representations or endorsements, express orimplied, with regard to the material contained herein. The NSW RFS does not warrant or represent that the material contained hereinis free from errors or omissions, or that it is exhaustive. Users should exercise their own skill and care with respect to its uses. You mustnot assume that this material will be suitable for the particular purpose that you had in mind when using it.The NSW RFS disclaims any liability (including but not limited to liability by reason of negligence) to the users of the material for anyloss, damage, cost or expense whether direct, indirect, consequential or special, incurred by, or arising by reason of, any person usingor relying on the material and whether caused by reason of, any error, omission or misrepresentation in the material or otherwise.Users of the Website will be responsible for making their own assessment of the material and should verify all relevant representations,statements and information with their own professional advisers.
Ministerial ForewordI like many believe in the age-old adage,‘if you fail to plan, you plan to fail’ and forthis reason I am delighted to know thatcommunities across NSW will have accessto this resource to help foster greaterresilience.Planning for Bush Fire Protection 2019 is a fantasticresource, particularly as we live in one of the mostbush fire prone places in the world.Over time, as our population increases, the issue ofpreparing for and mitigating against the risk of bushfire has become increasingly complex.One of our most important assets during a bush fireis a well prepared community.Since 2001, Planning for Bush Fire Protection hasbeen considered industry best practice in theprovision of bush fire protection standards. A prerelease version of Planning for Bush Fire Protection2018 was published on the NSW Rural Fire Servicewebsite in August 2018 which has been developedbased on extensive industry and public consultation.Planning for Bush Fire Protection 2019 is a refinedversion of the pre-release.Improved government policy, industry standards,technology and research following significant fireevents now sees Planning for Bush Fire Protection2019 continue to evolve, and provide improvedprotection for people and their properties in bush fireprone areas.It also draws upon the better understanding andexperience of fire events in NSW, including thosewhich impacted areas like the Blue Mountains,Coonabarabran and Southern Highlands in 2013, andTathra 2018.With lessons learned from major bush fire events,along with changes to building code and constructionstandards, this substantially revised 2019 editionof Planning for Bush Fire Protection is intendedfor use by councils, town planners, fire authorities,developers, planning and bush fire consultants,surveyors, building practitioners and approvalauthorities.While the updated Planning for Bush Fire Protection2019 focuses on ensuring developments are providedwith appropriate bush fire protection measures, italso aims to streamline processes for people buildingin bush fire prone areas.The principles in this edition of Planning for Bush FireProtection 2019 will significantly assist those involvedin building safe communities within bush fire proneareas, and help to increase resilience and publicconfidence through the NSW land use planningprocess. This revised version strikes an appropriatebalance of flexibility, the environment, communitysafety and housing affordability.I commend the work of the NSW Rural Fire Servicein putting this enhanced resource together andencourage its use as widely as possible.The NSW Rural Fire Service has a statutory obligationto protect life, property and the environment.The National Disaster Resilience Strategy (COAG2011) emphasises the importance of the strategicplanning system in contributing to the creation ofsafer and sustainable communities. The NationalDisaster Resilience Strategy identifies risk-based landmanagement and planning arrangements as a vitalcomponent in building disaster resilient communities.The NSW Office of Emergency Management 2017State Level Emergency Risk Assessment listed landuse planning as a top priority for NSW over the next5 years.Planning for Bush Fire Protection 2019 builds onthe outcomes and lessons of bush fire eventsexperienced over the past decade including the 2009Black Saturday bush fires in Victoria.Minister for Police and Emergency Services,the Honourable David Elliott MPPLANNING FOR BUSH FIRE PROTECTION - 20193
Contents1INTRODUCTION1.1Aim and objectives.101.2Bush fire protection principle.101.3Limitations of this document.111.4How to use this document.122FRAMEWORK2.1Legal framework.18162.2Bush fire prone land mapping.182.3Strategic planning .192.4Development assessment.192.5Construction provisions: the National Construction Code (NCC) and bush fire standards.212.6Other NSW RFS bush fire safety programs.212.7Bush Fire Survival Plans.223 BUSH FIRE PROTECTION MEASURES243.1Introduction.263.2Asset Protection Zones (APZ).263.3Building construction, siting and design.293.4Access arrangements.293.5Water supply and utilities .303.6Emergency management arrangements.313.7Landscaping.314 STRATEGIC PLANNING49324.1Strategic principles.344.2Strategic planning in bush fire prone areas.344.3Regional strategies and plans.364.4Local Environmental Plans (LEPs) .364.5Development Control Plans (DCPs).374.6Masterplans and Precinct Plans .37NSW RURAL FIRE SERVICE
5 RESIDENTIAL AND RURAL RESIDENTIAL SUBDIVISIONS385.1Background.405.2Specific objectives.425.3Bush fire protection measures.426 SPECIAL FIRE PROTECTION PURPOSE DEVELOPMENTS496.1Introduction.506.2Specific objectives.506.3Objectives for specific uses.516.4Development of existing SFPP facilities.526.5Minor development in SFPP facilities.536.6Alpine resorts.536.7SFPP developments in grassland areas.546.8Bush fire protection measures.547 RESIDENTIAL INFILL DEVELOPMENT627.1Introduction.647.2Home-based occupations.647.3Specific objectives.647.4Bush fire protection measures.657.5Additional construction requirements.697.6Fences and gates .707.7Determination of the BAL .717.8Better bush fire outcomes.717.9Grassland Deeming Provisions .718 OTHER DEVELOPMENT728.1Introduction.748.2Other residential development.748.3Other non-residential development.76PLANNING FOR BUSH FIRE PROTECTION - 20195
AppendicesAPPENDIX 1 SITE ASSESSMENT METHODOLOGYA1.180Application. 80A1.2Determine vegetation formation. 80A1.3Grassland assessment.83A1.4Determine slope.83A1.5Determine effective slope. 84A1.6Determine appropriate fire weather areas. 84A1.7Determine Bush Fire Attack Level.85A1.8Shielding. 86A1.9Exotic vegetation.87A1.10Low threat vegetation – exclusions.88A1.11Assessing remnant bushland and narrow vegetation corridors.88A1.12Comprehensive APZ, BAL and vegetation class tables. 89APPENDIX 2 SUBMISSION REQUIREMENTS, PERFORMANCE BASED SOLUTIONS ANDBUSH FIRE DESIGN BRIEFSA2.195Submission requirements for a BFSA.95A2.2 Submission requirements for infill development. 96A2.3 Submission requirements for Complying Development.97A2.4 Submission requirements and assessment methods for performance based solutions.97A2.5 Bush Fire Design Brief (BFDB). 98A2.6Bush Fire Management Plan. 98A2.7Qualified consultants . 99A2.8Pre-DA advice . 99APPENDIX 3 ACCESS100A3.1Vertical clearance . 100A3.2Vehicle turning requirements. 100A3.3Vehicle turning head requirements.102A3.4Passing bays.103A3.5Parking .103A3.6Kerb dimensions.104A3.7Services .104A3.8Local Area Traffic Management (LATM) .104A3.9Road types .105APPENDIX 4 ASSET PROTECTION ZONE STANDARDSA4.1106Asset Protection Zones. 106Abbreviations.109Definitions.110References. 1136NSW RURAL FIRE SERVICE
List of figuresFigure 1.5Step-by-step guide on how to use PBP14Figure A3.2bRoundabout swept path101Figure 2.423Assessment process for developments in bush fire prone areasFigure A3.3Multipoint turning options102Figure 3.1BPMs in combination26Figure A3.4Passing bays103Figures A1.281103Figure A1.4Determining slope83Figure A3.5Hydrants and parking bays104Figure A1.5Effective slope84Figure A3.6Carriageway kerb clearance dimensions105Figure A1.8aRadiant heat impact and shielding86Figure A3.9aPerimeter road widths105Figure A1.8bPlan view of radiant heat impact and shielding86Figure A3.9bNon-perimeter road widths105Figure A3.1Vertical clearance100Figure A3.9cProperty access road widths108Figure A3.2aSwept path width for turning vehicles101Figure A4.1Typical Inner and Outer Protection AreasList of tablesTable 4.2.1Bush Fire Strategic Study35Table 5.1.4aEquivalent values for FFDI and GFDI42Table 5.3a43Performance criteria and acceptable solutions for APZs forresidential and rural residential subdivisionsTable 5.3b44Performance criteria and acceptable solutions for access forresidential and rural residential subdivisionsTable 5.3c47Performance criteria and acceptable solutions for water,electricity and gas services for residential and rural residentialsubdivisionsTable 5.3d48Water supply requirements for non-reticulated developmentsor where reticulated water supply cannot be guaranteedTable 6.8a55Performance criteria and acceptable solutions for APZs andconstruction for SFPP developmentTable 6.8b57Performance criteria and acceptable solutions for access forSFPP developmentTable 6.8cPerformance criteria and acceptable solutions for water,electricity and gas services for SFPP development59Table 6.8d61Performance criteria and acceptable solutions for emergencymanagement plans for SFPP developmentTable 7.4a65Performance criteria and acceptable solutions for residentialinfill developmentTable 7.9aGrassland Deeming Provisions71Table 8.2.275Issues and considerations specific to multi-storey residentialdevelopmentTable A1.785Radiant heat flux exposure and appropriate Bush Fire AttackLevel (BAL)Table A1.9Exotic vegetation conversions87Table A1.12.1Minimum distances for APZs – SFPP developments89Table A1.12.2Minimum distances for APZs – residential subdivisiondevelopment, FFDI 100 areas ( 29kW/m2)90Table A1.12.3Minimum distances for APZs – residential subdivisiondevelopment, FFDI 80 areas ( 29kW/m2)90Table A1.12.490Allowable Outer Protection Area distances (m), within an APZfor forest vegetationTable A1.12.591Determination of Bush Fire Attack Level, FFDI 100 – residentialdevelopmentsTable A1.12.692Determination of Bush Fire Attack Level, FFDI 80 – residentialdevelopmentTable A1.12.793Determination of Bush Fire Attack Level, FFDI 50 – alpineareasTable A1.12.8Vegetation formation details94Table A3.2Minimum curve radius for turning vehicles100PLANNING FOR BUSH FIRE PROTECTION - 20197
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1 INTRODUCTIONPlanning for Bush Fire Protection 2019 (PBP) providesdevelopment standards for designing and building on bushfire prone land in New South Wales. PBP provides standardsand guidance for:strategic land use planning to ensure that new development is not exposedto high bush fire risk;creating new residential and rural residential subdivision allotments;special fire protection purpose (SFPP) development taking account ofoccupant vulnerability;bush fire protection measures (BPMs) for new buildings; andupgrading and maintaining existing development.PBP is applicable to all development on bush fire prone land (BFPL) in NSW. Thegeneral principles underlying this document are that:a suite of BPMs are required to reduce the impact of a bush fire;protection measures are governed by the degree of threat posed to adevelopment and the vulnerability of occupants;minimising the interface of a development to the hazard reduces the bushfire risk to the development; andgood practice in planning, building and management reduces the risk todevelopments and their occupants, and increases their resilience.PLANNING FOR BUSH FIRE PROTECTION - 20199
1.1Aim and objectivesAll development on BFPL must satisfy the aim andobjectives of Planning for Bush Fire Protection (PBP).The aim of PBP is to provide for the protection ofhuman life and minimise impacts on property fromthe threat of bush fire, while having due regardto development potential, site characteristics andprotection of the environment.The objectives are to:Bush fire protection can be achieved through acombination of strategies which are based on thefollowing principles:control the types of development permissible inbush fire prone areas;minimise the impact of radiant heat and directflame contact by separating development frombush fire hazards;afford buildings and their occupants protectionfrom exposure to a bush fire;minimise the vulnerability of buildings to ignitionand fire spread from flames, radiation and embers;provide for a defendable space to be locatedaround buildings;enable appropriate access and egress for thepublic and firefighters;provide appropriate separation between ahazard and buildings which, in combination withother measures, prevent the likely fire spread tobuildings;provide adequate water supplies for bush firesuppression operations;ensure that appropriate operational access andegress for emergency service personnel andoccupants is available;provide for ongoing management andmaintenance of BPMs; andensure that utility services are adequate to meetthe needs of firefighters.101.2 Bush fire protection principlesNSW RURAL FIRE SERVICEfocus on property preparedness, includingemergency planning and property maintenancerequirements; andfacilitate the maintenance of Asset ProtectionZones (APZs), fire trails, access for firefighting andon site equipment for fire suppression.
1.3 Limitations of this document1.3.3Due to a range of limitations, the measures containedin this document do not guarantee that loss of life,injury and/or property damage will not occur duringa bush fire event. Limitations of this documentinclude, but are not limited to uncertainties in thefollowing areas:The requirement to consider BPMs for developmentin bush fire prone areas was introduced on 1 August2002. Existing developments that were built priorto August 2002, may have limited or no BPMsincorporated into the design of the building. Thisalso presents major challenges for the design ofalterations and additions to existing buildings.Fire Danger Index;Existing developmentsfuel loads;1.3.4existing developments;A person’s behaviour in times of bush fire may beunpredictable. A person may have good intentionsto stay and defend their property from bush fire,but may change their mind once they experiencethe stress and anxiety associated with the heat,noise, flames and burning embers. Even where adevelopment can comply with PBP, unpredictablehuman behaviour can be a limiting factor and mayresult in injury, death or loss of property.human behaviour; andmaintenance.1.3.1Fire Danger IndexIt may be possible that days of higher Fire DangerIndex (FDI) may be experienced than the FDIlevels used in this document. This may result in firesituations where conditions challenge survivability ofbuildings and their occupants.Human behaviour1.3.2 Fuel loadsAll occupants in a bush fire prone area are advisedto prepare a Bush Fire Survival Plan, available todownload at NSW RFS website www.rfs.nsw.gov.au.Fuel loads and vegetation classes used in thisdocument are specific to NSW.1.3.5PBP has adopted a system of assessing fuelaccumulation rates based on vegetation formationsand time since last fire (Forestry Commission of NSW,1991). This has also been supported by publishedliterature on fuel loads (i.e. Good, 1994, Watson,2005, Cheney and Sullivan, 1997).In some instances fuel loads in an area may be higherthan those used in this document. This can influencebush fire behaviour and the potential impact onproperty.MaintenanceAn unprepared property is not only a risk to thebuilding owner/occupant, but may also presentan increased danger to neighbouring buildingsand firefighters. Even buildings which are built tocomply with PBP are placed at risk through poormaintenance.Post bush fire research recorded by the New SouthWales Rural Fire Service (NSW RFS) indicatesthat proper maintenance of dwellings and theircurtilage significantly improves the survivability ofstructures.Advice regarding the maintenance and protectionof existing buildings can be found on the NSW RFSwebsite at www.rfs.nsw.gov.au.PLANNING FOR BUSH FIRE PROTECTION - 201911
1.4 How to use this document1.4.1Applications for development on BFPL shouldinclude a bush fire assessment report. This reportmust demonstrate that the proposal satisfies therequirements of PBP. All applications must meet theAim and Objectives of PBP.BPM’s are the relevant specifications andrequirements that need to be satisfied to improve lifesafety, property protection and community resilienceto bush fire attack.PBP uses a performance based approach, andidentifies objectives and detailed performancecriteria to satisfy desired outcomes and meet theAim and Objectives. Ultimately, any performancebased approach must demonstrate that bush fireprotection is afforded to a proposed developmentcommensurate with the assessed level of bush firerisk and the characteristics of the occupants.This can be achieved by either applying theidentified ac
Determination of Bush Fire Attack Level, FFDI 100 - residential developments Table A1.12.6 92 Determination of Bush Fire Attack Level, FFDI 80 - residential development Table A1.12.7 93 Determination of Bush Fire Attack Level, FFDI 50 - alpine areas Table A1.12.8 94 Vegetation formation details Table A3.2 100
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Table 1 Fire Dependant Community Types within the Albany Pine Bush Study Area. Table 2 Average Number of Historic Fires, by Month, in the Albany Pine Bush, 1854-1987. Table 3 Summary of Prescribed Fire Management in the Albany Pine Bush Preserve, 1991-2009. Table 4 Summary of Mechanical and Fire Treatments in the Albany Pine Bush Preserve,
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