SUBMISSION TO - Parliament of Victoria - · PDF file- Page 1 of 89 - SUBMISSION TO Economic Development, Infrastructure and Outer Suburban/Interface Services Committee INQUIRY INTO

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SUBMISSION TO

Economic Development, Infrastructure and Outer Suburban/Interface Services Committee

INQUIRY INTO MARINE RESCUE SERVICES IN VICTORIA

MARCH 2014

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Australian Volunteer Coast Guard Association (Vic) Submission Inquiry into Marine Rescue Services in Victoria

AUSTRALIAN VOLUNTEER COAST GUARD ASSOCIATION

Incorporated in A.C.T. ABN 49 001 695 574

Office of Origin:

14 March 2014 Mr. Neale Burgess MP Chairman Economic Development, Infrastructure and Outer Suburban/Interface Services Committee Parliament House MELBOURNE VIC 3000 Dear Mr. Burgess

AUSTRALIAN VOLUNTEER COAST GUARD (VICTORIA) SUBMISSION TO INQUIRY INTO MARINE RESCUE SERVICES IN VICTORIA

I refer to the release of the Terms of Reference by the Governor in Council dated 28 January 2014 commissioning the above Inquiry. AVCGA (Vic) welcomes the opportunity to contribute to this Inquiry that it hopes will provide a significant opportunity to improve substantially the provision of marine rescue within Victoria, and redress some major shortcomings that have existed and compounded over a long period. AVCGA (Vic) hopes the outcomes of this Inquiry will inevitably shape the manner in which marine rescue is conducted in the State into the future. Accordingly this Inquiry is of extreme interest to Victoria’s marine rescue volunteers associated with AVCGA (Vic) and as recognised within the recent White Paper into emergency management arrangements necessitates the reliance and active involvement of volunteers to make the arrangements work effectively. I have much pleasure in providing you with a copy of the AVCGA (Vic) submission for the committee’s consideration and would appreciate an ongoing opportunity to address this issue directly with the committee. I trust you find the submission both comprehensive and useful in determining the outcomes of the Inquiry. Yours Sincerely

RAY CAMPBELL ESM CHAIRMAN - VICTORIA STATE COUNCIL

The AUSTRALIAN VOLUNTEER COAST GUARD ASSOCIATION is a voluntary organisation to promote safety in the operation of small craft It guards the coast in the most effective way - initially by EDUCATION, EXAMINATION & EXAMPLE and finally by SEARCH and

RESCUE

P.O. BOX 64 Sandringham VIC, 3191

Office Hours: (03) 9598 9092 Email: [email protected]

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Table of Contents

Preface / Terms of Reference ................................................................................ 4

EXECUTIVE SUMMARY .......................................................................................... 5

ABOUT AVCGA (VIC) ............................................................................................ 12 History of the AVCG ...................................................................................................................................... 12 Organisational Structure within the Victoria State Council ......................................................... 13

National Hierarchy ............................................................................................................................................ 13 Victoria State Council (VSC) .......................................................................................................................... 14

Financial Management ........................................................................................ 29 Assets & Liabilities ........................................................................................................................................ 29 Operating Income and Expenditure ....................................................................................................... 29

THE MARINE RESCUE ENVIRONMENT IN VICTORIA .............................................. 33 The Reliance and Importance of Volunteerism in Marine Rescue ............................................ 33 The Changing and Growing Victorian Boating Context ................................................................. 34 Victorian Marinas .......................................................................................................................................... 37 Marine Incidents ............................................................................................................................................ 39

Recreational Marine Incidents ..................................................................................................................... 39 Commercial Marine Incidents ...................................................................................................................... 39

Victoria Water Police ................................................................................................................................... 40 Victoria’s Emergency Management Arrangements ......................................................................... 41

MARINE RESCUE SERVICES .................................................................................. 44 The Current Structure (Emergency Management) ............................................................................ 44 The Current Structure (Regulatory) .......................................................................................................... 48 The assessment of ‘fit for purpose’ ............................................................................................................. 48 Ineffective Strategic Resource Planning .................................................................................................. 50

OPPORTUNITIES FOR IMPROVEMENT .................................................................. 53 Definition of Marine Rescue ...................................................................................................................... 54 Marine Rescue Unit Accreditation Process ......................................................................................... 55 Marine Sector Structural Reform Proposal ......................................................................................... 57

Enabling Financial Contribution................................................................................................................. 62

THE LEGISLATIVE FRAMEWORK ........................................................................... 66

MONITORING AND COMMUNICATIONS PROCESSES ............................................ 68 Existing Monitoring and Communications Networks .................................................................... 68

Marine Distress Emergency Monitoring System (MDEMS) ............................................................ 68 AVCGA (Vic) Operational Repeater Network ........................................................................................ 69 AVCGA (Vic) SafeTrx App ................................................................................................................................ 71

TRAINING & DEVELOPMENT ................................................................................ 73 AVCGA (Vic) Training Pathway ................................................................................................................ 73 Registered Training Organisation........................................................................................................... 77 Community Education ................................................................................................................................. 79 Minimum Requirements ............................................................................................................................. 81

CONCLUSION ...................................................................................................... 83

SUMMARY OF RECOMMENDATIONS FOR IMPROVEMENT ................................... 84

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Preface / Terms of Reference

This submission is made on behalf of the Australian Volunteer Coast Guard - Victoria (AVCGA

(Vic)) to the Economic Development, Infrastructure and Outer Suburban/Interface Services

Committee of the 57th Victorian Parliament Inquiry into Marine Rescue Services in Victoria. It

is made in response to the following Terms of Reference for this Inquiry:

Inquiry into Marine Rescue Services in Victoria

The Economic Development, Infrastructure and Outer Suburban/Interface Services

Committee is requested to inquire into, consider and report to the Parliament on Marine

Rescue Services in Victoria. The Committee is asked to:

a) identify the range of marine rescue services currently provided in Victoria and

consider whether the range and manner of services is fit for purpose;

b) outline the current structure of marine rescue service provision in Victoria and

consider possible improvements to that service provision;

c) outline the areas of responsibility for marine rescue service providers and regulators

and identify any areas of overlapping responsibility;

d) investigate the legislation that enables and governs search and rescue activities in

Victoria and provide recommendations on improvements;

e) review existing marine monitoring and communications processes underpinning

rescue services and provide advice on improvements which could be considered;

and

f) review the training and development needs for marine rescue service providers and

provide recommendations on improvements.

The Committee is requested to report to the Parliament no later than 1 August 2014.

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EXECUTIVE SUMMARY

The Australian Volunteer Coast Guard - Victoria (AVCGA (Vic)) welcomes the inquiry into

marine rescue services within Victoria. It hopes this inquiry will help to rectify a number of

long-term deficiencies in the recognition, definition, structure, resourcing, accreditation,

standards and assigned responsibilities for marine rescue in Victoria. This submission

focuses on these important issues aligned as much as is possible to the Terms of Reference

for the Inquiry.

AVCGA (Vic) is the largest and best equipped volunteer based marine rescue service within

Victoria with affiliation to a National confederated organisational structure. As such AVCGA

(Vic) is best equipped to provide robust advice and support to the Inquiry on the historical

nature and future arrangements for marine rescue within Victoria. As will become apparent

throughout its submissions AVCGA (Vic) believe there is clear and identified need for

stepped-change within the marine rescue environment in Victoria to:

Remove existing overlap and duplication and establish an enduring process to

ensure efficient and effective service delivery into the future that avoids duplication

and overlap

Establish a system that maximises the most effective and efficient use of current and

future resources and available funding

Align with the current reforms to emergency management arrangements in Victoria

and implement reforms within marine rescue that:

o Facilitates an all-hazards/all-agencies approach

o Builds community resilience within the marine context

o Establishes a shared responsibility for marine safety with all participants

Embed a new consolidated organisational structure and system wide approach to

marine rescue built on the principles of community, collaboration and capability

Establish the foundations for a viable, professional, agile and financially sustainable

marine rescue system and organisation for the future

Manage marine risk in a planned and structured manner built around a single State

marine rescue plan, standards, accreditation and structured resourcing

arrangements

Enhance and support volunteerism, including the engagement of youth through a

structured cadet program

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Introduce a contemporary communications and monitoring system for the marine

environment

With approximately 700 active operational members within 19 Flotillas1 AVCGA (Vic)

provides essential statewide support to the Victoria Police (Water Police) and the

commercial and recreational boating community. AVCGA (Vic) statewide capacity is

strategically positioned to maximise coverage and capability. The majority of the Flotillas

are located in coastal centres but two are located inland at Lake Eppalock (which also

services Lake Eildon) and Lake Hume. The following table outlines the location of these 19

Flotillas and the split of its waterborne and transport infrastructure:

Figure 1 – AVCGA (Vic) Flotilla and Resource Summary

With the expediential increase in boat ownership and boating activity across Victoria with

almost 170,000 recreational vessels registered in 2012, the consequential need for

assistance has also steadily increased, with the majority (approximately 85%) of these

incidents being disablements of the vessel. Recreational marine incidents have risen at a

faster rate (8% per annum) than the increase in boat registrations (1.2% per annum).

Recreational boating incidents reported to Victoria Police are increasing and totalled more

than 1,500 in 2012. Police coordinated and responded to 588 marine incident reports in

2012 and coordinated a volunteer agency to respond to 961 marine incident reports (63% of

1 Flotilla is the description used to identify an individual operational unit within the Coast Guard

organisation which is responsible for the local area.

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the total) in 2012. During this period AVCGA (Vic) activated 554 times (involving

approximately 80,000 hours of volunteer time) assisting vessels with an equivalent value of

in excess of $51M.

The following indicates the increased trend in marine incident activations since 2008, with

AVCGA (Vic) activations increasing by 15% per annum over this period, which far exceeds the

rate of increase in boat registrations over this same period (around 1% per annum).

Figure 2 – AVCGA (Vic) Victoria Marine Incident Activations 2008-2012

AVCGA (Vic) is the largest marine rescue service provider in the State supporting the Victoria

Police (Water Police) as the control agency2 for water rescue beyond the shoreline and the

provision of swimmer/beach based patrolling and rescue, which is the primary role of Life

Saving Victoria. Despite this AVCGA (Vic) is not listed as a key support agency within the

Emergency Management Manual – Victoria (EMMV) for water rescue although it is

mentioned as a key support agency for Fire, which is clearly its secondary role in support of

its collaborative arrangement with CFA. Moreover, the role statement for AVCGA (Vic)

contained within the same section of the Emergency Management Manual clearly

recognises AVCGA (Vic) roles as ‘rescue of persons endangered by vessel disablement at sea

due to mechanical or electrical failure, foundering, fire, person falling overboard and as a

support agency for Victoria Police (marine search and rescue)3. The lack of consistency in

the State’s own emergency management arrangements creates a level of ambiguity and is a

clear example of the need for greater clarification and definition being assigned to marine

rescue in Victoria.

AVCGA (Vic) believe clarity in the delineation of responsibility for the marine rescue and life

saving risk segment would establish a solid foundation upon which the required statewide

capability necessary to manage this risk, accreditation systems and response standards can

be evolved. AVCGA (Vic) believe a differential in definition between swimmer/beach based

2 Emergency Management Manual Victoria, Part 7 Emergency Management Agency Roles, page 7-3,

September 2013 3 ibid, page 7-23

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patrolling and rescue (i.e. life saving) to that involving marine rescue is necessary and AVCGA

(Vic) propose the definition for marine rescue should be ‘the locating and assisting vessels in

distress, whether at on inland, enclosed or coastal waters and bringing the vessel and its

occupants to safety, or if not feasible recovering and bringing the occupants to safety’.

AVCGA (Vic) believe this would be a useful starting point for rectifying the current ambiguity

that exists.

This delineation and clarity will support more efficient and effective service delivery and

alleviate any duplication, overlap or confusion that may currently exist, which is clearly a

major component of the Inquiry’s terms of reference. Of course this does not remove the

need for ongoing collaboration between life saving and marine rescue organisations and

activities. In fact AVCGA (Vic) believe a greater level of collaboration is both possible and

desirable despite each agencies different roles.

AVCGA (Vic) assets are valued at $4.3M with approximately $150,000 liabilities. Funding for

marine rescue within Victoria, with the exclusion of Victoria Police, primarily relies on and is

almost entirely dependent on grant programs. AVCGA (Vic) does not receive any regular

funding from either the Federal or State Governments. By nature grant funding is for

specific purposes, relies on the grant program being made available, is not guaranteed and

therefore cannot be relied upon as a regular income stream. This is evident by the

difference in grant income received by AVCGA (Vic) in 2010 to 2011 (2010 - $950,044, 2011 -

$1,180,917). The variation in grant funding occurs despite increasing boating activity,

activation levels, general operations and training/accreditation requirements as required by

National/State regulators to maintain currency.

AVCGA (Vic) receives reimbursement for fuel for activations by Victoria Police (Water Police)

upon the generation of a Marine Incident Report (MIR). This does not cover fuel usage

involved in AVCGA (Vic) initiated activations or training and general operational use of

vessels. This reimbursement process involves the submission of an invoice to the

Department of Transport with reimbursement processed and received within approximately

6-8 weeks after submission. This lag in reimbursement relies on AVCGA (Vic) being able to

cash flow fuel usage in order to maintain business continuity and service delivery to the

community. In 2012/13 ‘operational’ fuel usage totalled in excess of $160,000 with only

$70,000 being reimbursed through the MIR process. This is an outdated and resource

intensive process that does not support contemporary marine rescue practices and is out of

step with Government supported funding arrangements applicable to other major

emergency management agencies and activities. Moreover, this process does not cover

reimbursement of fuel costs associated with training to maintain seamanship accreditation,

which necessitates approximately 7,000 hours per year across the State.

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For its future sustainability AVCGA (Vic) must move from an annual, “hand-to-mouth”

existence, dependant on “one-off”, single purpose Government grants and submits that a

key outcome of this inquiry should be the initiation of discussions with the State

Government over a regular funding agreement, say on a triennial basis. Such a funding

agreement could:

Replace some of the grant funding currently being provided by State agencies.

Funding for the acquisition of new vessels should still be made via the grant process,

subject to a business case;

Provide funding for essential, recurrent items including equipment (excluding

vessels), uniforms, fuel, equipment/vessel maintenance and volunteer training;

Include funding for paid staff to support members;

Be tied to a contract with performance measures/targets and an annual review.

Excluding the acquisition of new vessels, marine rescue funding for all volunteer based units

and the establishment of a consolidated and resourced entity is estimated to require $4M

per annum.

AVCGA (Vic) believe consideration could be given to allocating a proportion (i.e. levy) of

existing revenues collected through boat registration fees and/or boat license fees for this

purpose. Alternatively, a small increase in these revenue streams could be consolidated to

provide regular funding for marine rescue. Additionally, consideration could be given to

introducing user charges, either on a full or partial cost recovery basis. The introduction of a

single integrated marine rescue agency would enhance the ability to channel financial

efficiencies and capitalise on alternative revenue generation opportunities.

With Victoria’s emergency management arrangements rapidly shifting to a genuine all-

hazards/all-agencies approach as outlined within the Victorian Emergency Management

Reform White Paper released in December 2012, it is timely for marine rescue activities to

be examined and integrated into the broad initiatives arising from the White Paper reform

process.

AVCGA (Vic) has a demonstrated history as a leader in this collaboration space and already

operates a confined all-hazards/all-agency approach within a collaborative relationship with

CFA and SES under the provisions of memoranda of understanding. However, this approach

relies upon a series of relationships and does not formally embed any of the policy

directions being implemented as the outworkings of the White Paper. AVCGA (Vic) totally

supports the new policy directions and strongly advocates through this submission that

these should be inclusive of marine rescue at the beginning of the reform processes. Whilst

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AVCGA (Vic) recognise marine rescue is not as prominent as other risk types and activities,

such as bushfire, it does believe integration of marine rescue and its elements present an

ideal platform from which the following activities which are strategically aligned to the

White Paper, can easily be achieved and in doing so rectify a number of current deficiencies

in marine rescue:

Clarification of Ministerial responsibility for marine rescue

Implementation of a ‘simplified system’ involving a consolidated single statewide

integrated marine rescue agency responsible for:

o ‘Greater community involvement in emergency management’ and a focus

on establishing community resilience within the marine environment

through the promotion of safer boating facilitated by a coordinated

community engagement and education program (in consultation with

Transport Safety Victoria)

o Development and delivery of ‘common training and operating platforms to

ensure better delivery systems for emergency services’ including:

o Accredited marine rescue, boat and personal watercraft licensing, safety and

seamanship training and development

o Accreditation of marine rescue units

o Development of statewide (not agency specific) marine rescue capability

requirements for the State, in consultation with the Victoria Police (Water

Police)

o Provision of volunteer based marine rescue services and support to Victoria

Police (Water Police) and the boating community

o ‘Initiatives to retain and grow the volunteer sector’ and encourage, maintain

and strengthen the capacity of volunteers to support marine rescue

activities, including the engagement of youth through a structured cadet

program

o Centralised procurement and asset replacement strategy

o Centralised and prudent financial management for marine rescue,

incorporating the coordination and endorsements for grant funding

applications based on a structured and prioritised statewide strategy and

identified need

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AVCGA (Vic) submits a level of consolidation is necessary to achieve this single agency

approach and the delivery of a more efficient and effective marine rescue services within

Victoria by removing current levels of overlap, ensuring the provision of services is fit for

purpose commensurate with risk and is streamlined and coordinated without any level of

parochialism. AVCGA (Vic) proposes the organisational structure needs some paid staff

support as well as ‘once-off’ seed funding to establish the organisation and a commitment to

ongoing recurrent ‘base funding’ to cater for essential need such as minimum skills training

and accreditation, insurance, fuel and provision of uniformed minimum safety equipment.

Fundamentally AVCGA (Vic) believe this Inquiry needs to determine what level of marine

rescue service it wants for the State into the future, how much it is willing to resource this

service and how it is to be administered. AVCGA (Vic) recognise the finite resources available

to the State and the pressures on the State economy, but without answering these hard

questions and the provision of this level of support, marine rescue will unfortunately

continue to falter and operate on a “hand-to-mouth” basis with no stepped change which

AVCGA (Vic) believes is necessary for the provision of professional and contemporary marine

rescue for the future.

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ABOUT AVCGA (VIC)

A description of the AVCG with particular focus on the Victorian operations has been

compiled from available documents including the AVCG Members’ Handbook (Nov 2006),

the AVCG CFA Marine Response Memorandum of Understanding (2005), financial reports

and discussions with various members of the AVCGA (Vic) Executive.

History of the AVCG

The foundation of the AVCG in 1960 was inspired by the work of the United States Coast

Guard and its auxiliary formation. The Australian Coast Guard Auxiliary was founded in

September 1961 with the aid of the USCG Auxiliary. This initial organisation consisted of

three flotillas and launched a Public Education Program based on the U.S. information.

Soon flotillas were established in South Australia and by 1963 six flotillas existed around Port

Phillip Bay and four in Adelaide.

The organisation was renamed the Australian Volunteer Coastguard Association

Incorporated in 1970.

An organisation in NSW already existed which carried out similar services to the Coast Guard

but an official New South Wales Squadron of the AVCG was not established until 1976.

A constitution was drawn up for the organisation in November 1971. The constitution was

subsequently registered under a by-law to ensure unity with the national body and to

guarantee the status of the South Australian squadron.

Squadrons in Queensland were authorised in 1972. By 2004 the AVCG had over 70

operational flotillas spread over ten squadrons covering an area from the tip of Cape York,

through Queensland, New South Wales, Victoria, South Australia and Tasmania.

In the initial stages, the organisation relied on member-owned vessels but now it owns

approximately 100 vessels capable of offering assistance at sea. There are also

approximately 147 AVCG operated radio bases (as at 2004).

The operation of the AVCG has expanded to major inland lakes and expansion will continue

to areas identified as in need.

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Organisational Structure within the Victoria State Council

The AVCGA (Vic) is part of the AVCG and by virtue of this its members are members of the

national organisation. All sections of the organisation operate under a single national

constitution and national board comprising a member of every squadron. However, a

hierarchical chain of command determines defined areas of responsibility and procedures,

protocols, policies and training standards. Individuals perform their duties and operational

service at a specific geographical location, designated by the flotilla.

National Hierarchy

The AVCG has three organisational tiers:

1. The National tier incorporates the National Board which is responsible for the

governance of the entire organisation and consisting of the National Executive

Officers and all Squadron Commodores.

2. The Regional tier is denoted by Squadrons. Squadrons cover large geographical

regions and oversee the proper functioning of their constituent flotillas. The AVCG

currently has ten squadrons each requiring a minimum of three functioning flotillas

with some having over ten flotillas under their jurisdiction. Each Squadron board

covers large geographical regions and oversee the proper functioning of their

constituent flotillas. Each Squadron Board consists of its executive officers and

Flotilla commanders in the squadron area. Victoria is governed by two squadrons

(Melbourne/Port Phillip and Gippsland) which are overseen by the Victoria State

Council.

3. The Local level is denoted by the operational unit of the Flotilla. All members,

regardless of duties on higher Boards, need to be a member of a flotilla. Flotillas

operate Radio bases and Patrol Vessels and conduct public education programs. As

at 2013, there were 52 operational flotillas in the AVCG with over 2,500 regular

operational members. The Victorian State Council oversees 19 active flotillas

(around 30% of the national total) with 670 members (around 20% of the national

total).

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Figure 3 – Coast Guard Hierarchy of Command (State and National Layers)

Victoria State Council (VSC)

The VSC, like all other squadrons of the AVCG, acts with complete authority as delegated by

the National Board. The only exception to the squadron’s authority is that it cannot make

any decision that would affect the membership of the Association as a whole, nor can it

make any decision contrary to that of the National Board.

The VSC Board consists of the entire sitting Commodores of the State’s squadrons and

appointed officers.

The VSC Board is responsible for the promotion of the policies and objectives of the

Association and the administration of all personnel, facilities and activities within the area

under its command. It is responsible also for the proper conduct of public education

programs, the implementation and administration of membership training and the control

of operational activities.

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The Board has power to deal with any of the following matters, provided that its actions are

not inconsistent with National Board rulings:

To determine eligibility of individuals for membership of the Association

To determine eligibility of members for elected or appointed office

To remove as it sees fit any officer from office, with the exception of Squadron

Executive Officers, provided that such Officer shall have the right of appeal

To carry out the disciplining of members

To carry out the disenrollment of members

To approve or disapprove all applications from units for liquor licenses

To deal with enrolment and re-enrolment of members.

These special powers, as detailed above, are absolute and there is no right of appeal to the

National Board in these matters except where it is claimed by a formation or a member that

a Squadron Board may have acted in breach of the Constitution, a By-law or Squadron

Standing Officer.

In the following matters the decision of a Squadron Board is not effective until confirmed by

the National Board:

The formation, dis-abandonment and reformation of divisions and flotillas; and

The removal from office of Squadron Executive Officers.

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Figure 4 – AVCGA (Vic) Structure

Administration, Assets & Ownership

All funds and property coming into the possession or control of a Division or Flotilla remain

in its possession and under its control with discretionary power to deal with it in pursuit of

the objects of the Association.

Divisions and Flotillas must appoint a responsible person to maintain a proper and correct

record of all funds and property coming into their possession or under their control and they

must also ensure that proper care is taken of any such property.

Each Division or Flotilla has the power to buy, sell, mortgage, lease or otherwise deal with

land and assets and to borrow money, using its property as security.

The legal title to any such land or assets must be in the name of the Australian Volunteer

Coast Guard Association, which holds the Title in trust for the Division, or Flotilla entitled to

it.

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Key functions and Activities of the Victoria State Council

The AVCGs primary focus is to promote small craft safety on the water through its modus

operandi of the three E’s: Education, Example and Examination and finally by Search and

Rescue.

The key objectives of the AVCG (Vic) are:

To promote safety in boating and the use of pleasure craft in Australia;

To assist in the prevention of loss of life and property of the members of the

association and others;

To assist persons in need on or adjacent to the waters of Australia who, most

conveniently, can be assisted by members of the association;

To train members and the public in the use of sea craft and seamanship; first aid and

resuscitation;

To train personnel capable of assisting in the defence of Australia upon the seas and

elsewhere.

Preventative Activities

Consistent with the outcomes of the recent White Paper and for many years AVCGA (Vic)

has had a concentration of a range of preventative activities to support the community and

mitigate risk rather than manage the consequence. These preventative activities represent

the primary focus for which the AVCG was established. The responsibilities of members

under the constitution are fully discharged if, by a reasonable degree of activity, they assist

the Association in the realisation of its aims in the preventative field.

It is the fundamental aim of the Association to make search and rescue unnecessary by

proactive intervention.

Preventative action includes components of education, examination and example.

The principle tenets of AVCGA (Vic)’s preventative activities include:

Education & Training

Vessel Examination Program

Displaying a high example of seamanship and observance

Routine maintenance

Community engagement and education programs focussed at safe boating

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Search and Rescue

Much of the AVCG on-water activity involves regular safety patrols where advice and

assistance is given, if necessary, to members of the recreational boating public who find

themselves or their vessels in need.

The Victoria Squadron also undertakes, when necessary, search and rescue operations.

Many flotillas, including those located in the Gippsland Squadron are orientated toward the

search and rescue functions of the AVCGA (Vic) as opposed to education and training. This is

due to a member need for qualifications in search and rescue operations.

In times of need, AVCGA (Vic) members will embark on rescue missions using their fast

response, purpose-built vessels and employing their equipment and skills to locate and

render assistance to those requiring it.

The AVCG (Vic) is an accredited MSAR support agency in five states, working directly with

the State Water Police. The AVCG (Vic) radio bases and on-water vessels can be co-

ordinated in times of crisis by Rescue Liaison Officers, who work directly with government

authorities.

In the 2012 calendar year, the AVCGA (Vic) was activated 554 times, assisting vessels with an

estimated value of $51,294,150. This compares to 2008 with 316 activations, assisting

vessels with an estimated value of $7,289,150 as seen in Figure 5. Overall there was an 81%

increase in the number of activations between 2008 and 2012.

Figure 5 below shows that the total number of man-hours logged by AVCGA (Vic) members

in 2012 was 77,592, a 139% increase since 2008. The total number of engine hours logged in

2012 was 4,594, an increase of 65% from 2008.

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Figure 5 – AVCGA (Vic) Activations for Flotillas, Assists, Man-Hours and Engine Hours – 2008 and 20124

Number of Activations Total 2008 Total 2012 % Change 2008-

2012

Police 88 144 64%

Ambulance 1 0 -100%

Self 227 410 81%

TOTAL 316 554 75%

Approximate value of vessels

assisted $7,289,150 $51,294,150 604%

Total Unit man-hours 32,427 77,592 139%

Total Engine Hours 2,777 4,594 65%

Figure 6 shows that the proportion of self-activations has remained relatively consistent

from 2008 to 2012. Activations generated by the Victoria Police generally average 31% of

the total activations of the AVCGA (Vic).

Some Victoria Squadrons, such as Gippsland is entirely activated by Emergency Services; in

other words, no jobs are conducted without being deployed by Gippsland Water Police

and/or WATPOL. The Gippsland Squadron, with the exception of Paynesville are response

only flotillas. Paynesville conduct patrols and have monitored radio schedules.

Figure 6 – Proportion of Activations 2008-20125

2008 2009 2010 2011 2012 Average

Police 28% 38% 38% 26% 26% 31%

Ambulance 0% 0% 0% 0% 0% 0%

Self 72% 62% 62% 73% 74% 69%

TOTAL 100% 100% 100% 100% 100% 100%

4 Source: AVCG Operational Report, 2008-2012.

5 ibid

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Activations have been trending upward since 2008, as shown in Figure 7 below. The highest

number of activations occurred in 2010/2011. On average AVCGA (Vic) activations have

increased by 15% per annum since 2008. This substantially exceeds the rate of increase in

boat registrations during that time (around 1% per annum).

Figure 7 – AVCGA (Vic) Marine Incident Activations 2008-20126

Number and Location of Flotillas

The AVCGA (Vic) consists of 19 Flotillas. The majority of these are located in coastal centres

however there are also two inland units located at Lake Eppalock and Lake Hume. The Lake

Eppalock unit also services Lake Eildon when assistance is required; however the CFA is the

accredited VMR provider for Lake Eildon. The 19 Flotillas combined own and operate 30

vessels and 15 towing vehicles/trailers.

Figure 8 shows the location of the Victorian flotillas, together with the number of vessels,

towing vehicles and trailers.


6 ibid

316

571 518

644 554

0

200

400

600

800

2008 2009 2010 2011 2012

Total Activations

Name Location Vessels

(Boats/Catamarans/PWC)

Towing

(Vehicles/Trailers/Vans/

Caravans)

VF1 Frankston Frankston 3 3

VF2 St Kilda St Kilda 2 1

VF4 Hastings Hastings 1 0

VF5 Lake Eppalock Lake Eppalock 2 1

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Figure 9 overleaf spatially demonstrates the locations and resources of AVCGA (Vic) Flotillas

across the State. It demonstrates the strategic location planning in establishing state-wide

coverage commensurate with risk, capability and capacity.

VF6 Safety Beach Safety Beach 1 1

VF7 Carrum Patterson

Lakes

1 1

VF8 Geelong North Geelong 1 0

VF9 Queenscliff Queenscliff 1 0

VF10 Werribee Werribee

South

2 3

VF11 Lake Hume Bonegilla 3 1

VF12 Sandringham Sandringham

VF15 Mallacoota Mallacoota

VF16 Warrnambool Warrnambool 2 0

VF17 Portland Portland 1 0

VF18 Lakes Entrance Lakes

Entrance

3 0

VF19 Port Albert Port Albert 2 1

VF20 Port Welshpool Port

Welshpool

1 1

VF21 Marlo Marlo 3 1

VF22 Paynesville Paynesville 1 1

Total 30 15

- Page 22 of 89 -

Australian Volunteer Coast Guard Submission Inquiry into Marine Rescue Services in Victoria


- Page 23 of 89 -

Australian Volunteer Coast Guard Submission Inquiry into Marine Rescue Services in Victoria

Volunteer Members

As at February 2013 the AVCGA (Vic) had 670 volunteer members. There has been a

significant increase of 258 members (63%) between April 2008 and February 2013.

The AVCGA (Vic) also has around 1,200 Supporter Members, an increase of 200 members

since April 2008. These members receive a hat and a magazine, are updated regularly on

AVCG (Vic) events and receive discounts for training. Supporter Members pay $50 per

annum, which supports the overall operations of the AVCGA (Vic).

The large increase in volunteer membership could be attributed to the following:

New members pay no fees;

The increasing visibility levels and quality of equipment in recent years;

The opportunity to receive training and formal qualifications at no cost through the

AVCG as it is a Registered Training Organisation (RTO). This qualification is nationally

recognised and can therefore be used anywhere in Australia;

The opportunity to put the training and formal qualifications into effect through

practical experience with AVCG;

The establishment of the online membership enquiries page; and

Increasing awareness of the AVCG.

Currently there is only one junior full-time employee that provides administrative support to

the AVCGA (Vic) members.

As demonstrated in Figure 10 below, in each calendar year AVCGA (Vic), averages 11,692

logged engine hours and 61,286 unit logged man-hours.

Figure 10 – AVCGA (Vic) Engine Hours and Man Hours 2008-20127

Engine Hours Total Unit Man Hours

2008 2,777 32,427

2009 5,647 54,685

2010 26,475 56,219

2011 18,968 85,509

7 ibid

- Page 24 of 89 -


Engine Hours Total Unit Man Hours

2012 4,594 77,592

Total 58,461 306,432

Average 11,692 61,286

In 2012, the value of the volunteer labour provided to AVCGA (Vic) Victoria is estimated at

around $2.2 million8. As volunteer member man-hours have generally been increasing since

2008, the economic value of the AVCGA (Vic) volunteer members will continue to increase.

Strategic Alliances

The AVCGA (Vic) maintains operational alliances with a number of complementary state

government bodies. These alliances are aimed at producing a comprehensive and co-

ordinated response when services are required.

CFA

A Memorandum of Understanding (MOU) was created between the AVCGA (Vic) and the

CFA in May 2005. The MOU recognises that “the Agencies agree that whilst they do not

have responsibility at law or under the Emergency Management Manual to provide support

to each other at incidents they will, subject to capacity, endeavour to assist each other in

responding to incidents. This can be done through the provision of equipment, human

resources, incident management support, or specialist advice.” This is a clear example of

the all-hazards/all-agencies philosophy at work.

The AVCGA (Vic) and the CFA, under the MOU, agree to work together to develop protocols

and Standard Operating Procedures (SOP) for Joint Operation Activities (JOA) and Joint

Training Activities (JTA).

The MOU is operational for three years unless reviewed or extended. Either party upon one

month’s written notice to the other can terminate the MOU.

The MOU sets out the following terms:

8 The Economic Value of Volunteering in Victoria, December 2012, Department of Planning and

Community Development (DPCD) provides average wage rates, which have been applied to the 77,592 hours logged by AVCG volunteers.

- Page 25 of 89 -


Training

The participation in JTAs is aimed at enhancing the performance of JOAs and is seen as an

opportunity for the development and fostering of interagency relationships.

Training opportunities will be pursued in the following areas:

Incident management in the marine and multi-agency environment;

Safety at sea;

Operating and handling small water craft;

Water borne fire fighting;

Marine search and rescue.

Financial Arrangements

The MOU stipulates that each agency is responsible for funding their own operations arising

out of any JOA or JTA unless otherwise agreed.

Co-operation: Sharing Ideas and Knowledge

The AVCGA (Vic) and CFA are to meet every six months to discuss areas of mutual interest

including the following;

The operation of the MOU;

Opportunities for JTAs;

Issues concerning volunteerism in the emergency services;

Equipment standard, training standards and technology;

Lessons from recent incidents.

Other operational aspects covered by the MOU between the AVCGA (Vic) and the CFA

contain agreements in relation to the following:

Media;

Occupational Health and Safety Requirements.

In addition to the existing MOU, a Partnership Reference Group was established in January

2008 between the CFA and the AVCGA (Vic) under the auspices of the CFA Joint Operations

Consultative Committee. The purpose of the partnership group is to provide a consultative

forum for key partnership stakeholders within the CFA and AVCGA (Vic).

The Reference Group aimed to meet quarterly and for specific purposes as required

involving the following members:

- Page 26 of 89 -


CFA Chief Officer or nominated executive;

Chairman, Victorian State Council of AVCG;

Two CFA Field Representatives;

Two representatives of the AVCGA (VIC);

One representative each from the (Victorian Rural Fire Brigades Association

(VRFBA), Victorian Urban Fire Brigades Association (VUFBA), Volunteer Fire Brigades

Victoria (VFBV).

The CFA – Victoria State Council Reference Group aims to provide a forum for the

development and maintenance of the partnership between CFA and the AVCGA (VIC), as

well as to facilitate communication to enhance project implementation, and identify

obstacles and opportunities for the enhancement of the partnership between the two

organisations.

Discussion with CFA and AVCGA (Vic) representatives indicate that the relationship is highly

valued and there is a high degree of cooperation at the brigade level. In addition, the AVCGA

(Vic) assistance in the Black Saturday bushfires, through the provision of personnel,

equipment and vehicles was particularly appreciated.

SES

A Memorandum of Understanding (MOU) was created between the AVCGA (Vic) and the SES

in May 2010. The terms of this MOU are similar to those in the CFA MOU.

The MOU provides that the organisations will:

provide support to each other at specific incidents where one of the agencies is the

Control Agency and assist each other in responding to these incidents;

work together to develop Protocols and Standard Operating Procedures dealing with

Multi-Agency Operational Activities and Joint Training Activities;

pursue opportunities for Joint Training Activities;

meet every 6 months to discuss areas of mutual interest.

Port of Melbourne Corporation

The Port of Melbourne Corporation (PoMC) and the AVCGA (Vic) work together closely

through the ‘Steer Clear’ campaign and the manning of Point Lonsdale lighthouse.

Port of Melbourne Corporation own two vessels, which are used for security patrols, the

Steer Clear campaign and to provide water access. As a reflection of the collaborative

- Page 27 of 89 -


relationship that exists between PoMC and Coast Guard, PoMC has recently confirmed that

it “has a clear desire to build on its existing relationship with AVCGA and support the local

Flotilla. POMC would like to proceed with developing “in principle agreements” with AVCGA

to provide the MV TIM MUIR and MV LONSDALE as a platform for training and development

of AVCGA members and to assist with Search & Rescue activities. This in turn will support

our mutual endeavours of establishing local capacity to crew PoMC vessels”.9

Discussions with the PoMC indicate that the relationship with AVCGA (Vic) is highly valued

and is capable of evolution .

Steer Clear Campaign10

The AVCGA (Vic) is involved with the Steer Clear campaign for the Port of Melbourne

Corporation. The Steer Clear campaign is designed to clear shipping channels of anchored

recreational boats in Port Phillip Bay.

The Steer Clear campaign brings together key stakeholders including the Victoria Police,

AVCGA (Vic), Port of Melbourne, Transport Safety Victoria and Parks Victoria. The group

meets at the beginning of every year to determine activities and priorities.

A strict ‘Transit Only Zone’ currently applies in the vicinity of Fawkner Beacon, which is

clearly marked by yellow buoys. If boat operators anchor, drift or engage in fishing activities

in this area penalty notices can be issued by Victoria Police. The Port of Melbourne has

Safety Officers who can also impose fines. However, a key part of the Steer Clear campaign

is education and prevention with the AVCGA (Vic) playing a part in keeping the shipping

lanes clear.

9 Correspondence to AVCGA (Vic) from Greg Cotsworth, Manager Security Services, Port of

Melbourne Corporation, 24 September 2013 10

Port of Melbourne Corporation, Media Release, October 2006

- Page 28 of 89 -


Point Lonsdale Lighthouse

The AVCGA (Vic) currently has an agreement with the Port of Melbourne Corporation

(PoMC) to man the Point Lonsdale Lighthouse, which is a Limited Coast Radio Station during

weekends in summer months.

The AVCGA (Vic) role is to use the lighthouse as a lookout to monitor recreational boating

activity.

International Alliances

The AVCGA (Vic) has a number of alliances and relationships with international bodies. Such

international alliances are important for sharing and exchanging information and resources

across organisations and reinforce the creditability of the organisation as a formal and active

marine body.

The AVCG has relationships with Coast Guard New Zealand, the Royal National Lifeboat

Institution (RLNI), the Italian, Canadian and U.S. Coast Guard and is a member of the

International Marine Rescue Federation (IMRF).

- Page 29 of 89 -


Financial Management

Assets & Liabilities

AVCGA (Vic) total assets are valued at $4,327,669 and total liabilities were $149,05011. Both

total assets and total liabilities increased from 2010 to 2011 with net assets increasing by

4%.

Operating Income and Expenditure

AVCGA (Vic) struggles to generate a surplus and maintain a professional and responsive

service to the community. Surplus results generally include grants awarded during the

financial year for projects to be undertaken in the following financial year. This creates an

environment of needing to use grant funding allocated for next years projects to remain

solvent in the previous reporting year. This is totally inappropriate and is not sustainable for

a viable organisation moving forward.

Moreover, the additional pressure this places on volunteers to fundraise and cut

expenditure is an unfair burden. The compounding effect of the time and effort required to

fundraise on top of the time and effort associated with operational activity and skills

maintenance obligations to remain accredited, these volunteers (and the community)

fatigue quickly with adverse impacts on the retention rate of volunteers who joined to

provide marine rescue services to the community not to spend most of their volunteer time

fundraising to keep the unit/organisation afloat. For example volunteers involved in marine

rescue need to fundraise to keep the service operational, purchase their own uniforms and

safety equipment and most importantly fund and pay for core operating costs such as fuel

and appropriate insurance coverage. These types of funding activities have long ceased in

other comparable volunteer based organisations both within Victoria and Interstate and

need to be rectified for marine rescue to advance into the future.

In addition local fundraising currently competes with other community-based organisations

and is becoming more difficult as the discretionary spend available to households becomes

tighter. In addition, adverse reaction to the new Fire Service Levy is resulting in a reluctance

(out of ignorance) to donate to any ‘perceived’ Government run emergency service.

11

The Australian Volunteer Coast Guard Association Incorporated, Victoria Squadron (VSC), Annual

Financial Report, 30 June 2013

- Page 30 of 89 -


INCOME

The biggest source of income12 for AVCGA (Vic) was ‘Grants’ ($440,139) in 2012/13, followed

by ‘Donations & Fundraising’ ($296,429), ‘Sundry Reimbursements’ ($231,262). It should be

noted that there is a delay between the timing of the receipt of grants funds and their

expenditure. This may create a larger net surplus or deficit at the time of the financial

analysis than exists in real terms and creates a hand-to-mouth financial management

regime, which is not sustainable.

Grant funding is obtained for specific activities or purchases. Grant funding and donations

obtained by the AVCGA (Vic) is not guaranteed, nor is it a regular income stream, evidenced

by the large difference in grant income from 2010 to 2011. This variation in grant funding

occurs despite the increasing levels of activations and operations performed by the AVCGA

(Vic).

The AVCGA (Vic) does not receive any regular funding from either the Federal or State

Governments.

EXPENDITURE

The largest items of expenditure13 for AVCGA (Vic) in 2012/13 include ‘Grant & Other

Expenses’ ($392,181), ‘Fuel’ ($144,446), ‘Insurance’ ($111,474) and ‘Repairs and

Maintenance’ ($147,312).

It should be noted that expenditure is at absolute minimum and for example the fuel

expense item does not cater for the necessary training for members to maintain their

currency and accreditation which in turn has a flow-on effect on the ability to crew vessels

and deliver a service to the community. This is a critical issue to be considered and

addressed moving forward and establishing a sustainable and viable marine rescue service.

GRANT PROGRAMS

The Volunteer Emergency Services Equipment Program (VESEP)

The Voluntary Emergency Services Equipment Program (VESEP) has provided the AVCGA

(Vic) with over $1.3 million in funding from 2007/08 financial year to 2012/13 financial year.

12

The Australian Volunteer Coast Guard Association Incorporated, Victoria Squadron (VSC), Annual


13 The Australian Volunteer Coast Guard Association Incorporated, Victoria Squadron (VSC), Annual


- Page 31 of 89 -


The VESEP offers grants of up to a maximum of $100,000 excluding GST and will contribute

$2 for every $1 of funding contributed by the local volunteer group.

The VESEP is open to the following organisations;

Australian Coast Guard Association;

Country Fire Authority;

Life Saving Victoria;

Victoria State Emergency Service;

And other smaller eligible emergency services groups.

Some of the grants contributed to the AVCGA (Vic) include:

$300,000 for uniforms;

$418,914 for tow vehicles;

$233,620 for facilities enhancement;

$178,011 for safety gear;

$146,660 for electronics – radios;

$26,825 for replacing motors: and

$8,000 for refurbishing vessels.

Total VESEP grants made from 2007/08 to 2012/13 is shown in Figure 11 below.

Figure 11 – VSEP Grants Program Contributions 2007-201314

Marine Safety Victoria (MSV)

Grant funding obtained through the MSV Boating Safety and Facilities Program, has provided

the AVCGA (Vic) with over $1.8 million in funding from the 2006/07 financial year to the

2012/13 financial year. This is primarily directed towards new vessels, equipment and major

14

Summary of VESEP Grants, Victoria State Council, 2013

$282,166

$253,594

$176,689

$99,786

$81,970

$417,825

12/13

11/12

10/11

09/10

08/09

07/08

- Page 32 of 89 -


maintenance. Funding applications are submitted by the AVCGA (Vic) on behalf of individual

flotillas and projects. A history of MSV grants is shown in Figure 12 below.

Figure 12 – MSV Grants Program Contributions 2006-201315

Valuing Volunteers Program (VVP)

The VVP is designed to provide the AVCGA (Vic), CFA, LSV and SES with additional resources

and support for their volunteer initiatives. Since the 2010/11 financial year to the 2012/13

financial year the VVP has provided the AVCGA (Vic) with $580,000 of funding. The yearly

breakdown of funding can be seen in Figure 13 below.

Figure 13 – VVP Grants Program Contributions 2010-201316

15

Summary of MSV Grants, Victoria State Council, 2013

16 Summary of VSP Grants, Victoria State Council, 2013

$175,924

$220,452

$238,262

$638,193

$91,502

$324,475

$155,000

12/13

11/12

10/11

09/10

08/09

07/08

06/07

$180,000

$200,000

$200,000

10/11

11/12

12/13

- Page 33 of 89 -


THE MARINE RESCUE ENVIRONMENT IN VICTORIA

The Reliance and Importance of Volunteerism in Marine Rescue

Marine rescue, like a range of other emergency management activities relies heavily on

volunteers and the spirit of volunteerism across the State. The importance and reliance on

volunteers to deliver Victoria’s emergency management arrangements is widely known and

recognised by Government. This has been reinforced by recent independent inquiries17 and

also through the White Paper18 which clearly articulates, “Victoria’s emergency services are

highly dependent on the efforts of thousands of volunteers. These volunteers are essential

to the response to routine emergencies and provide essential surge capacity during major

emergencies.”19

The Hon. David Jones AM in a Government initiated review into volunteerism within CFA

also recognised that ‘while it is useful to measure the value of volunteers in economic value,

the true value of volunteerism cannot be captured in dollar terms. Across Victoria, the

social value that CFA volunteers contribute towards creating and maintaining dynamic,

engaged and resilient communities is significant’.20 This equally applies to marine rescue

volunteerism.

This is a vitally important distinction that underpins this submission throughout. Not just

simply because the State could not afford an alternative but more importantly because of

the critical role that emergency service volunteering plays to achieving community resilience

through being community based and strongly supported by local communities in responding

to their respective roles within emergency management.

17

Hon. Gordon Lewis AM report, February 2008, 2009 Bushfires Royal Commission Report July 2010, Hon. David Jones AM Report July 2011 18

Victorian Emergency Management Reform – White Paper, December 2012 19

ibid, p.35 20

Hon. David Jones AM Report of Inquiry into the Effect of Arrangements made by the Country Fire Authority, July 2011, p.121

This section covers the following Terms of Reference of this Inquiry: a) identify the range of marine rescue services currently provided in Victoria and

consider whether the range and manner of services is fit for purpose; b) outline the current structure of marine rescue service provision in Victoria and

consider possible improvements to that service provision; c) outline the areas of responsibility for marine rescue service providers and regulators

and identify any areas of overlapping responsibility;

- Page 34 of 89 -


161,210

165,204 167,631

169,233

155,000

160,000

165,000

170,000

2009 2010 2011 2012

AVCGA (Vic) submits that whatever changes arise from this Inquiry these fundamental

tenets must be considered and integrated into any proposed changes.

The Changing and Growing Victorian Boating Context

Recreational boat ownership and boating activity has increased significantly in Victoria from

2010 to 2013. There are currently over 169,200 registered recreational vessels and private

water crafts (PWC) in Victoria, as seen in Figure 14. As shown in Figure 14, recreational

boating registrations have been increasing steadily over time with the number of registered

vessels growing by 5% between June 2009 and December 2012.

The majority of these registrations are for Open vessels (69%), Half Cabin vessels (16%) and

PWCs (8%) as shown in Figure 15. The proportions of these types of vessels to total

registrations have generally remained constant from 2009/2010 to 2012/2013.

Figure 14 – Recreational Vessel and PWC Registrations 2009-201221

Figure 15 – Registered Recreational Vessel by Type22

Vessel Type 2009/2010 2010/2011 2011/2012 2012/2013

Cabin Cruiser 4% 3% 3% 3%

Canoe 0% 0% 0% 0%

Half Cabin 16% 16% 16% 16%

Houseboat 0% 0% 0% 0%

Hovercraft 0% 0% 0% 0%

Open 70% 69% 69% 69%

21

Marine Safety Incident and Demographic Statistics, Transport Safety Victoria, July-December 2012 22

ibid

- Page 35 of 89 -


Vessel Type 2009/2010 2010/2011 2011/2012 2012/2013

Personal Water

Craft 7% 8% 8% 8%

Ski Boat 0% 0% 0% 0%

Trailer Sailer 1% 1% 1% 1%

Windsurfer 0% 0% 0% 0%

Yacht (keel boat) 2% 2% 2% 1%

Total 100% 100% 100% 100%

Figure 16 shows that the size of vessels being registered for recreational boating in Victoria

is increasing. Since 2010, the registration of vessels between 4.8m and 8m as well as those

between 8m and 12m in length has increased by 9% and 8% respectively compared to

vessels between 0m and 4.8m (3%). This would suggest that the value of vessels registered is

also increasing.

Growth in personal watercraft that do not need to be registered, such as kayaks, is

becoming an increasing safety issue on Victorian waterways and is changing marine assist

activities.

Although the number of vessels has steadily been increasing since 2009, the number of

licenses has fallen since 2010. The number of licenses peaked in 2011 at 299,270 and has

since fallen to 281,602 in December 2012, as seen in Figure 17.

Figure 18 shows the percentage of marine licences held by age group. It shows that the

number of licences held by younger age groups has fallen and this largely explains the fall in

the number of licences overall. This is possibly due to changes in the Marine Safety Act that

allows an unlicensed person to operate a vessel in the company of a licensed person, in

conjunction with the cost of obtaining and holding a licence. The proportion of licences held

by all other age groups has remained relatively steady since 2010.

- Page 36 of 89 -


Figure 16 – Recreational Vessel and PWC Registrations by Size 2009-201223

Length of Vessel

and PWCs

Registered

2009-

2010

2010-

2011

2011-

2012

2012-

2013

%

Change

2009-

2012

0-4.8 m 104,093 105,978 106,613 106,803 3%

4.8 - 8 m 52,232 54,154 55,754 57,133 9%

8 - 12 m 3,369 3,502 3,638 3,639 8%

Greater than 12

m 1,515 1,569 1,626 1,658 9%

Total Vessels 161,210 165,204 167,631 169,233 5%

Figure 17 – Number of current licences, vessel and average licences per vessels 2009-201224

2009-

2010

2010-

2011

2011-

2012

2012-

2013

Licenses 294,719 299,270 291,287 281,602

Vessels 161,210 165,204 167,631 169,233

Average Number of

Licenses per Vessel 1.83 1.81 1.74 1.66

Figure 18 – Percentage of Marine Licences held by Age Group25

Age Group 2009-2010 2010-2011 2011-2012 2012-2013

12-16 years 3% 2% 1% 1%

17-25 years 14% 13% 12% 11%

26-35 years 18% 18% 18% 18%

36-45 years 23% 23% 23% 22%

23

ibid 24

ibid 25

ibid

- Page 37 of 89 -


Age Group 2009-2010 2010-2011 2011-2012 2012-2013

46-55 years 21% 21% 22% 22%

56-65 years 14% 14% 15% 15%

66-80 years 7% 7% 8% 9%

80 or older 1% 1% 1% 1%

Victorian Marinas

There are currently 39 marinas operating in Victoria, 18 of which belong to the Marina

Industries Association in Victoria and 21, which are non-member marinas. The Docklands

contains the highest number of member marinas, with four, followed by Williamston (2

marinas). Figure 19 below outlines the locations of the current marinas in Victoria for which

AVCGA (Vic) is strategically positioned and provides the majority of the services required. It

is axiomatic that where marinas are located and within close proximity significant incident

and related activity is generated.

Figure 19 – Victorian Marinas26

Marina Industries

Association Marinas Location Non-Member Marinas Location

d'Albora Marina Victoria

Harbour Docklands Royal Geelong Yacht Club Geelong

Marina Yarra Edge Docklands Royal Brighton Yacht Club Middle Brighton

New Quay Marina Docklands Mordialloc Motor Yacht

Club Mordialloc

Melbourne City Marina Docklands Mornington Yacht Club Mornington

d'Albora Marinas Pier

35

Port

Melbourne

Queenscliff Cruising Yacht

Club Queenscliff

Blairgowrie Yacht

Squadron Blairgowrie

Royal Victorian Motor

Yacht Club Williamstown

26

Source - http://www.marinasguide.com.au/marinas/marina-vic.htm

- Page 38 of 89 -


Marina Industries

Association Marinas Location Non-Member Marinas Location

Martha Cove Harbour Martha Cove Royal Yacht Club of

Victoria Williamstown

Patterson Lakes Marina Patterson

Lakes Hobson's Bay Yacht Club Williamstown

Queenscliff Harbour Queenscliff Tambo Marine Johnsonville

Sandringham Yacht Club Sandringham Loch Sport Marina Loch Sport

St Kilda Marina St Kilda Chainman’s Creek Marina Metung

Royal Melbourne Yacht

Squadron St Kilda West

The Beaches Marina -

Kings Cove Metung

Anchorage Marina Williamstown 5 Knots Marina Metung

Savages Wharf Williamstown Gippsland Lakes Yacht

Club Paynesville

Western Port Marina Hastings Mariners Cove Paynesville Paynesville

Metung Marina Metung Slip Bright Marina Paynesville

Yaringa Marina Somerville Newhaven Yacht

Squadron Phillip Island

Lake Eildon Marina Lake Eildon Portland Marina Portland

San Remo Harbour San Remo

Dockside Mildura Marina Mildura

Murray Downs Marina Swan Hill

- Page 39 of 89 -


Marine Incidents

Recreational Marine Incidents

Figure 20 shows recreational marine incidents for a 6-month period from July to December

of each reporting year since 2008.

The number of recreational marine incidents has been trending upward since 2008.

Recreational marine incidents peaked in 2011 at 668 incidents for the 6-month period. They

have since fallen slightly to 655 incidents in 2012. The majority of these incidents are

disablements of the vessel (an average of 85% from 2008 to 2012).

Recreational marine incidents have risen at a faster rate (6% per annum) than the increase

in boat registrations (1.2% per annum). Other factors influencing the rate of marine

incidents include weather conditions, drought and floods.

Figure 20 – Total Recreational Marine Incidents – July to December of each reporting period27

Commercial Marine Incidents

Figure 21 shows commercial marine incidents for a 6-month period from July to December

of each reporting year since 2008.

The number of commercial marine incidents has been trending downward since 2008; from

a high of 50 to a five-year low of 25 commercial marine incidents in 2012.

Like recreation boating incidents, the majority of commercial marine incidents are

disablements of the vessel, (an average of 44% from 2008 to 2012).

Figure 21 – Total Commercial Marine Incidents – July to December of each reporting period28

27

ibid 28

ibid

493 560 538

668 655

0

200

400

600

800

2008-2009 2009-2010 2010-2011 2011-2012 2012-2013

Total Recreational Marine Incidents

50 34 29 29 25

0

50

100

2008-2009 2009-2010 2010-2011 2011-2012 2012-2013

Total Commercial Marine Incidents

- Page 40 of 89 -


Figure 22 shows the location of marine incidents by waterway for the period July to

December 2012. Port Phillip Bay recorded the highest number of incidents with 408,

followed by Western Port (116 incidents).

Figure 22 – Marine Incidents by Waterway – July to December 201229

Waterway Total Number of Incidents

Port Phillip Bay 408

Western Port 116

Corio Bay 40

Bass Strait - Northern 17

Bass Strait - Western 16

Lake Victoria 15

Bass Strait - Eastern 12

Lake King 10

Port Albert 9

Victoria Water Police

The Victorian Water Police were involved in 1,536 marine search and rescue incidents during

2011/2012 as shown in Figure 23. This involved a total of 5,866 personnel hours.

A breakdown of water police involvement in such incidents is as follows:

Coordinated and responded - 588 MIR – 4391 hours

Coordinated volunteer agency to respond - 961 MIR – 1528 hours

A spike in the number of incidents is largely due to the flooding of inland lakes and rivers,

combined with the return of water to major inland water bodies after the drought years.

29

ibid

- Page 41 of 89 -


Figure 23– Number of Marine Incidents by Financial Year30

2007/08 2008/09 2009/10 2010/11 2011/12

Jul 39 27 32 34 32

Aug 51 46 40 35 44

Sep 79 64 48 50 90

Oct 115 118 122 124 153

Nov 194 165 222 181 202

Dec 184 168 191 186 226

Jan 245 288 234 240 299

Feb 88 93 126 104 129

Mar 152 119 132 129 146

Apr 77 104 109 134 138

May 71 59 66 55 32

Jun 40 40 48 46 45

Total 1335 1291 1370 1318 1536

Victoria’s Emergency Management Arrangements

Victoria’s emergency management arrangements are currently administered under the

Emergency Management Act (the Act) and related agency specific legislative regimes. The

Emergency Management Manual Victoria (EMMV)31 supports the practical application and

outworkings of this legislative framework. Marine rescue (known as Water Rescue) within

the EMMV is a recognised ‘emergency/threat’. Part 7 of the EMMV establishes Emergency

Management Agency Roles in accordance with the Act.

Agency roles are identified as either:

30

National SAR Council, Victoria Water Police, State SAR Activity Report, 11 October 2012

31 Emergency Management Manual Victoria

- Page 42 of 89 -


Control Agency32

A control agency is an agency identified within this table that is assigned to control the

response activities to a specified type of emergency. The control agency may change as the

emergency response progresses or is clarified.

For certain types of emergency, more than one control agency is shown, as the assigned

control agency may vary by location. Regional and municipal response plans identify the

relevant control agencies for their areas.

or

Support Agency33

A support agency is an agency that provides essential services, personnel, or material to

support or assist a control agency or affected persons.

A key support agency is an agency that has specific skills and resources to support response

for a particular type of emergency. Key support agencies are shown in the table below, but

the table does not identify every agency that may be involved in an emergency.

Support agencies that are not named in this table should be included in specific purpose

response plans or arrangements.

Any agency might be asked to assist in any emergency if it has skills or resources that may

contribute to the response.

This part of the Manual then outlines in tabulated form the control and support agencies for

a particular emergency/threat. For the marine emergency/threat and marine rescue the

following is outlined within the EMMV34:

EMERGENCY/THREAT CONTROL AGENCY

(may vary by location) KEY SUPPORT AGENCIES

ACCIDENT/INCIDENT

Marine (not including marine

pollution)

Victoria Police TSV, AMSA

RESCUE

Water Victoria Police VICSES,LSV

32

ibid, page 7-1, September 2013 33

ibid, page 7-1, September 2013 34

ibid, pages 7-2 and 7-3

- Page 43 of 89 -


Coast Guard Recommendations That the Inquiry into Marine Rescue should recommend: 1. Victoria Emergency Management Arrangements split the responsibility for Life Saving (Shoreline and Beach patrolling and rescue) and Marine Rescue 2. Coast Guard be recognised and included as a key support agency within the Emergency Management Manual Victoria (EMMV)

Of particular interest to AVCGA (Vic) is the fact that despite them being the largest marine

rescue service provider in the State supporting the Victoria Police (Water Police) as the

control agency35 for water rescue beyond the shoreline and the provision of swimmer/beach

based patrolling and rescue, which is the primary role of Life Saving Victoria, AVCGA (Vic) are

not recognised and listed as a key support agency within the EMMV.

The role statement for AVCGA (Vic) contained within the same section of the EMMV clearly

recognises AVCGA (Vic) roles as ‘rescue of persons endangered by vessel disablement at sea

due to mechanical or electrical failure, foundering, fire, person falling overboard and as a

support agency for Victoria Police (marine search and rescue)36. The lack of consistency in

the State’s own emergency management arrangements creates a level of ambiguity and is a

clear example of the need for greater clarification and definition being assigned to marine

rescue in Victoria.

AVCGA (Vic) believe clarity in the delineation of responsibility for this acknowledged risk

segment would establish a solid foundation upon which the required statewide capability

necessary to manage this risk, accreditation systems and response standards can be evolved.

AVCGA (Vic) believe a differential in definition between swimmer/beach based patrolling

and rescue (i.e. life saving) to that involving locating, rescuing from vessels in distress at sea

or in sheltered waters and bringing their occupants and vessels to safety within the

recreational and commercial boating community (i.e. marine rescue) would be a useful

starting point.

Despite the absence of recognition for its ‘core business’ of marine rescue, AVCGA (Vic) is

listed as a key support agency for Fire37, which is clearly its secondary role in support of its

collaborative arrangement with CFA.

35

Emergency Management Manual Victoria, Part 7 Emergency Management Agency Roles, page 7-3, September 2013 36

ibid, page 7-23 37

ibid, page 7-3

- Page 44 of 89 -


MARINE RESCUE SERVICES

The Current Structure (Emergency Management)

Within the gamut of the above arrangements marine rescue services is appropriately

managed by Victoria Police (Water Police) as the ‘control agency’ whom also has this

responsibility within the jurisdiction under the provisions of the National Marine Search &

Rescue Plan. A range of volunteer based marine rescue services as outlined below support

police within its existing control agency functions:

Figure 24– Existing agencies and locations

Marine Rescue Type Agency Locations

Life Saving

(Shoreline and Beach patrolling

and rescue)

Life Savings Victoria38

8 regions

57 clubs

28k volunteer

members

Bass Region

Cape Paterson SLSC

Inverloch SLSC

Venus Bay SLSC

Waratah Beach SLSC

Wonthaggi LSC

Woolamai Beach SLSC

Bellarine Region

Anglesea SLSC

Bancoora SLSC

Barwon Heads/13th Beach SLSC

Jan Juc SLSC

Ocean Grove SLSC

Point Lonsdale SLSC

Torquay SLSC

Gippsland Region

Lakes Entrance SLSC

Mallacoota SLSC

Seaspray SLSC

Woodside Beach SLSC

38

Life Saving Victoria locations sourced from LSV website, 11 March 2014

- Page 45 of 89 -


Kingston Region

Aspendale LSC

Bonbeach LSC

Carrum SLSC

Chelsea Longbeach SLSC

Edithvale LSC

Frankston LSC

Mentone LSC

Mordialloc LSC

Seaford LSC

Peninsula Region

Dromana Bay LSC

Gunnamatta SLSC

Mornington LSC

Mount Martha LSC

Point Leo SLSC

Portsea SLSC

Rosebud & McCrae LSC

Sorrento SLSC

Port Phillip Region

Altona LSC

Beaumaris LSC

Black Rock LSC

Brighton LSC

Elwood LSC

Half Moon Bay SLSC

Hampton LSC

Port Melbourne LSC

Sandridge LSC

Sandringham LSC

South Melbourne LSC

St Kilda LSC

- Page 46 of 89 -


Williamstown LSC

Surfcoast Region

Apollo Bay SLSC

Fairhaven SLSC

Kennett River SLSC

Lorne SLSC

Wye River SLSC

Western Region

Mildura LSC

Port Campbell SLSC

Port Fairy SLSC

Portland SLSC

Warrnambool SLSC

Marine Rescue Australian Volunteer Coast

Guard – Victoria

2 squadrons

19 flotillas

670 volunteer

members

30 vessels

15 vehicles

Victoria Squadron

Frankston

St Kilda

Hastings

Lake Eppalock

Safety Beach

Patterson Lakes

North Geelong

Queenscliff

Werribee South

Bonegilla

Sandringham

Mallacoota

Warrnambool

Portland

Gippsland Squadron

Lakes Entrance

Port Albert

Port Welshpool

- Page 47 of 89 -


Marlo

Paynesville

Volunteer Marine

Rescue39

3 vessels

Hastings

Mornington

Southern Peninsula

Rescue Service40

25 members

1 vessel

Sorrento

Torquay Marine Rescue

Service

Torquay

Apollo Bay Ocean Rescue Apollo Bay

State Emergency Service41

6 regions

153 units

5k general

volunteer

members (not all

marine rescue)

Mallacoota

Sale

Inverloch

The provision of services from the above organisations is coordinated by Victoria Police in

accordance with the State Emergency Response Plan contained within Part 3 of the EMMV.

In addition specific reference to how these arrangements apply to marine emergencies is

found in Part 8 of the EMMV, which contains an appendix, Appendix 3 providing guidance on

Special Response Arrangements (USAR, DVI, Martine EMT). The Police Rescue Coordination

Centre (RCC) located at the Water Police HQ in Williamstown coordinates marine rescue

response.

It should be noted that whilst Victoria Police have a diverse range of resources that are not

listed in the above, they are also heavily involved in general policing activities that includes

enforcement, investigation, events, escort and counter terrorism type operations.

39

Volunteer Marine Rescue data sourced from VMR website, 12 March 2014 40

Southern Peninsula Rescue Service figures sourced from SPRS website, 12 March 2014 41

State Emergency Service figures sourced from SES Annual Report 2012-13

- Page 48 of 89 -


Therefore, it should not be automatically assumed that all Police resources are available for

marine rescue in isolation of other general policing tasks and priorities.

Whilst SES has a presence in marine rescue this is not a core statutory activity of SES. In

addition flood boats should not be considered as a viable marine rescue resource.

The Current Structure (Regulatory)

The regulatory functions within the marine environment and the development of ‘general

marine standards’ sit with Transport Safety Victoria (TSV). TSV determine such regulatory

functions as:

Survey requirements for vessels

Licencing requirements for vessel operations

Vessel crewing standards commensurate with the survey classification and

operating environment for the vessel

Enforcement

Compliance and investigations

The assessment of ‘fit for purpose’

Within its terms of reference the Inquiry is asked to consider whether the range and manner

of services is ‘fit for purpose’. This is a difficult task in the absence of a State marine rescue

risk assessment, State Plan, clearly defined standards and associated capability

requirements in order to mitigate/manage the risk in accordance with the defined

standards. Unfortunately to the best knowledge of AVCGA (Vic) these do not exist nor does

a documented State Marine Rescue Plan. Therefore any assessment by the Inquiry of

whether or not the range and manner of services is fit-for-purpose on this basis will be

subjective and potentially seriously flawed.

Moreover, the current separation of the State marine rescue arrangements, spanning

different organisations operating within different doctrinal arrangements and not being

bound be a single integrated statewide policy, plans, systems or standards, overall statewide

marine rescue capability is presently all done at an organisation level with little/no reference

to another agencies actual or planned capability or capacity. This leads to duplication,

inefficiency and certainly does not result in the level of interoperability that one should

expect from agencies within the same State for the same hazard type. This is a clear

outworking of the recent emergency management reforms contained within the White

Paper from which AVCGA (Vic) submit the Inquiry should address it findings against.

- Page 49 of 89 -


AVCGA (Vic) firmly believe the planning for and building of capability for marine rescue (and

for that matter any other hazard) should be done at an integrated statewide level, in

consultation with the responsible control agency for the particular hazard type, in the case

of marine rescue this being Victoria Police. The AVCGA (Vic) reform proposals outlined in

this submission are clearly aimed at providing greater coordination to support Victoria Police

in this regard.

The objective of the development of a Marine Rescue Capability Model is to establish, plan

and maintain an appropriate level of capability to manage marine rescue in accordance with

the State’s statutory obligations, commensurate with risk.

Under the AVCGA (Vic) reform proposals this will be achieved in a structured and

incremental manner recognising the current resource/budget constraints and priorities

whilst also exploiting all available opportunities to maximise partnerships with other

agencies and industry, thus minimising the financial burden and investment needs of

agencies and Government.

This concept will also allow the necessary spread of service demand across the State

commensurate with the State risk assessment and strategic location plans to support service

delivery from a multi-agency perspective (i.e. all-hazards/all-agencies).

In accordance with AVCGA (Vic)’s reform proposals the development of a State Marine

Rescue Capability Model will attempt to integrate all marine rescue emergency management

requirements across AVCGA (Vic) and other agencies thus providing concise and logical

parameters upon which the following can occur:

Single integrated budget and business case/business planning submissions can be

made (either internally or through the Government budgetary and grant processes);

Integrated community engagement and education processes as they relate to

marine rescue focused at building community reliance and a shared responsibility

for managing marine risk;

Systematic operational planning at State, Regional and Local level can be undertaken

in accordance with the model;

Multi-Agency planning and co-operative arrangements can be undertaken from a

‘whole of government’ perspective;

Internal liaison and planning priorities can be provided within agencies;

Legislative changes and other external influences can occur, in line with the strategic

direction.

- Page 50 of 89 -


In doing so, it will endeavour to build off AVCGA (Vic) strengths as a leader in marine rescue.

Recognising the resources available to Coast Guard (and other agencies) will always be

limited, whether the task is preparing for operations or fulfilling operational commitments,

The AVCGA (Vic) proposed operational management framework provides a mechanism to

balance competing demands of generating capability for near-term tasks from a capability

baseline42 (preparedness) and developing future capability (modernisation). Balance is

required between both because decisions to invest in one area will generally result in fewer

resources for the other.

Current capability is managed principally by allocating resources to individual agencies.

AVCGA (Vic) suggests that these resources should be described in terms of the following

Fundamental Inputs to Capability (FIC): organisation, personnel, collective training, major

systems, supplies, facilities, support, command and management and are managed on a

centralised basis.

Ineffective Strategic Resource Planning

The current situation with respect to strategic planning for marine rescue is ineffective and

contrary to the concepts outlined within the White Paper. It is the AVCGA (Vic) opinion that

effective resource planning for marine risk should:

Encompass all available resources within the State;

Have regard for time and space issues in deployment;

Consider an all hazards perspective to planning, including the alignment of resource

capability/capacity commensurate with risk/hazard type;

Provide a level of contingency planning and surge capacity, including consideration

of the potential need for interstate and Commonwealth resource support;

Incorporate the potential long term duration requirements of an incident/s,

including business continuity and welfare/fatigue management obligations;

Forecast impending conditions and ongoing potential.

This cannot occur with agencies operating at a discrete agency level or in isolation from one

another. As outlined within the White Paper the vision for effective emergency management

is supported by three key principles on community, collaboration and capability43. AVCGA

(Vic) solidly believe these must be considered in the context of the findings of the Inquiry

42 Capability Baseline refers to the core capabilities and skills (both individual and collective) required by an agency to perform operational tasks. 43

Victorian Emergency Management Reform – White Paper, December 2012, p.3

- Page 51 of 89 -


and guide the future arrangements and structure for marine rescue within the State. The

following diagram from the White Paper44 consolidates these issues, which should guide the

deliberations and outcomes of the Inquiry:

Figure 25– Emergency Management Reform Framework

Stakeholder Management / Committee Representation

AVCGA (Vic) currently enjoys a good working relationship with Victoria Police, CFA, SES,

PoMC and Life Saving Victoria. Nothing in this submission or reform proposals are aimed at

diminishing any of these relationships. If anything it is designed to strengthen these

relationships through a more structured, resourced and coordinated organisation. Ongoing

opportunities for collaboration will be explored as the outworkings of any proposed reform

arrangement, which includes such things as collocation, resource sharing, integrated

programs (including training) and shared opportunities for commercial success.

AVCGA (Vic) are currently represented on the following committees, which is proposed to

continue under the proposed establishment of a consolidated marine rescue entity:

Ministers Volunteer Consultative Forum (arising out of White Paper)

Victorian Marine Search & Rescue Committee

44

ibid

- Page 52 of 89 -


National Volunteer Marine Search & Rescue Committee

Heads of Water Safety and Emergency Management Programs Committee

International Maritime Rescue Federation

Coast Guard Recommendations That the Inquiry into Marine Rescue should recommend: 3. Development of a single integrated State Marine Rescue Plan (in line with the frameworks and reforms outlined within the White Paper) consisting of:

o State Marine Risk Assessment o Statewide policy o Doctrine o Standards o Statewide marine rescue capability assessment o Responsibilities o Command and control arrangements o Training & exercising o Communications o Reporting arrangements o Community engagement and education strategy

- Page 53 of 89 -


OPPORTUNITIES FOR IMPROVEMENT

AVCGA (Vic) submits that there are significant opportunities for improvement in the

structure and delivery of marine rescue services in Victoria. These would immediately result

in a more effective and efficient marine rescue service for Victoria and alleviate a number of

overlapping responsibilities, duplication, costs and provide a more holistic and standardised

marine rescue service consistent with the new emergency management environment in

which marine rescue will operate. AVCGA (Vic) believe upon any analysis the costs of

operations, membership, training, asset procurement, maintenance, replacement and

operating costs is far exceeding the ability of any organisation to sustain into the future. The

future viability of providing a professional, responsive and adequately equipped marine

rescue service into the future can only be achieved by consolidation and a reduction in

duplication and competition for resources and members through the establishment of a

single integrated organisation.

These opportunities for improvement are not without precedent and a review of the newly

established arrangements and structure for marine rescue in NSW is a good contemporary

and comparative model from which the Inquiry should draw upon. In 2012/13 Marine

Rescue NSW45:

Operated 47 units

Consisted of 3,287 volunteer members

Attended 3,226 incidents and responded to 370K marine radio calls

Employed 15 staff

Managed the following financial basis:

$11.7M revenue ($7.86M coming from Government)

$9.4M expenses

Surplus budget result of $2.3M

Delivered 9 new vessels

Had a Board of 10 Directors

Another example that the Inquiry should inform itself of is the Volunteer Marine Rescue

Services – Western Australia administered under the Department of Fire and Emergency

Services (DFES) consisting of:

45

Marine Rescue NSW Annual Report 2012/13

- Page 54 of 89 -


37 units

1,200 members

Covered under the DFES Act

Like the proposed reform outlined below, Marine Rescue NSW and Volunteer Marine Rescue

Service WA operate in a similar operating environment to that which operates in Victoria,

namely:

Is volunteer based

Works under the direction and in support of the Police (Water Command)

Forms part of the State emergency management arrangements

Assists other emergency management agencies and as memoranda of

understanding to guide the collaborative relationship

Sits on and actively participates in State level structures and has a reporting

relationship to the Minister for Police and Emergency Services

Is a company limited by guarantee (Marine Rescue NSW only)

Marine Rescue does not include the integration of Life Saving

These two organisations should be used as a benchmark during the Inquiry process.

Definition of Marine Rescue

In order to properly construct any consideration of current and future arrangements it is

first necessary for the Inquiry to define what is meant by ‘marine rescue’. In the absence of

this anything potentially connected with rescue and water (presumably) could be considered

marine rescue, which would include the residential swimming pool or aquatic centres.

AVCGA (Vic) submits this is not the case and whilst the context is different, draws upon an

article46 produced which examines the meaning or marine and land rescue in NSW in some

level of detail. This article and Oxford dictionary definitions of maritime and marine has

informed the AVCGA (Vic) proposed definition outlined below.

Moreover, as indicated elsewhere in this submission confusion already exists within Victoria

in this regard, as evidenced by the nomination of support agencies and the use of the term

‘water’ rescue in the State’s emergency management arrangements, including the absence

of AVCGA (Vic). It is therefore necessary for marine rescue to be clearly defined. AVCGA

(Vic) submits this does not include beach patrols or the rescue of swimmers that is

46

Australian Emergency Law, Meaning of ‘marine’ and ‘land’ rescue in NSW, M.Eburn, 2012

- Page 55 of 89 -


colloquially, appropriately and well known as ‘life saving’ and should continue to remain the

province of Life Saving Victoria.

In the Victorian context and aligned to waterway definitions used in the State, AVCGA (Vic)

submits the appropriate definition for ‘marine rescue’ is:

‘Marine rescue is the locating and assisting vessels in distress, whether at on inland,

enclosed or coastal waters and bringing the vessel and its occupants to safety, or if

not feasible recovering and bringing the occupants to safety’.

Marine Rescue Unit Accreditation Process

Notwithstanding any amalgamation and/or consolidation of existing marine rescue

services/units, which may arise from this Inquiry, AVCGA (Vic) submit a standard

accreditation process needs to be introduced. This will ensure the State maintains the

appropriate balance between the resources required for establishing and maintaining

marine rescue services and the service expectations of the community and/or Government.

Without this structured approach, as has been seen in the past, anybody can establish and

start operating within the space regardless of:

Desired capability and capacity and any identified service gaps that may exist; or

Existing capability and capacity with consequential duplication and overlap (e.g.

AVCGA (Vic) and VMR both having units and vessels located within the Hastings

Marina); or

Minimum standards for the provision of marine rescue services.

This ultimately leads to over-servicing in some areas and under-servicing in others and the

creation of tension, conflict and a competitive rather than collaborative relationship

between individuals and/or units. The absence of any structured accreditation process

resulted in this exact situation occurring with respect to the provision of road accident

rescue services many years ago and the need for Government to promulgate the ‘Road

Accident Rescue in Victoria – A New Era’ policy document in 1989 and a revised version of

this in 201047. AVCGA (Vic) submits this document and processes contained therein provides

a very sound basis for the Inquiry to consider these important issues.

The implementation of holistic accreditation arrangements will ensure the State has in place

an effective, efficient and sustainable marine rescue service commensurate with risk and

community expectations. This also needs to cater for the potential allocation of police

resources to general policing tasks in lieu of marine rescue as well as the provision of surge

47

Road Rescue Arrangements Victoria, Victorian Government, 2010

- Page 56 of 89 -


capacity for prolonged or complex events. However both these circumstances should be

catered for in the risk assessment process. The ultimate outcome of adopting this approach

from ‘a system’ perspective is ensuring marine rescue resources are adequately located and

resourced to deliver service to the State and the alleviation of any duplication and

unnecessary fundraising and/or allocation of Government/community funds where they are

not required. In addition, as outlined within the road rescue arrangements, a clear dispute

resolution process should also be included in this process.

The accreditation arrangements need to cater for a system wide approach for:

New Unit Accreditation

o Needs analysis against State Marine Rescue Plan and Standards

o Consultation with existing providers and community

Approvals process

o To equip and train

o To commence operation

Existing Unit Maintenance & Reaccreditation

o Capability and capacity

o Training and equipment standards (including skills maintenance and testing

regimes)

o On-scene performance

o Maintenance of reporting and service delivery standards (against State

standards)

Scalable Disputes and Grievances Process (focused on local resolution with an

escalation process if required)

o Within and between agencies and/or units (including the maintenance of

service area etc…)

o Between agencies and/or units and members of the community

- Page 57 of 89 -


Figure 26 – Integrated Accreditation Process

In accordance with the marine rescue sector structural reform proposal outlined below,

AVCGA (Vic) submits the new integrated entity be responsible for the development of this

accreditation process in consultation with existing providers and Water Police as well as

being responsible for administering the accreditation process and providing annual reports

to the Emergency Management Commissioner. The Emergency Management Inspectorate

should have a role in auditing the system and its administration but will not have the skills or

expertise to conduct the process.

Marine Sector Structural Reform Proposal

The main elements of the AVCGA (Vic) reform proposal include:

Designation of responsibility for marine rescue services to the Minister for Police

and Emergency Management.

Maintenance of Victoria Police (Water Police) as the control agency for marine

rescue.

Maintenance of Life Saving Victoria as the key support agency for life saving

activities along Victoria’s beaches (including swimmer and beach based patrolling

and rescue) as distinct from marine rescue.

Bringing together of existing volunteer based marine rescue organisations into a

new consolidated marine rescue organisation called Coast Guard Victoria. AVCGA

(Vic) is extremely conscious of the perception that may arise using the words Coast

Guard in the proposed new entity’s nomenclature and that it may be seen to

resemble and be portrayed as a takeover. However the brand of Coast Guard is well

entrenched and known within the boating and general community. To start to

educate the community on a new name like Marine Rescue Victoria will require

Delivery of Integrated & Accredited

Marine Rescue Services

Current Units

Maintenance & Audit

Requirements

New Units Application

- Page 58 of 89 -


additional education and also may be confused with Marine Safety Victoria. AVGA

(Vic) believe comfort can be taken from their acceptance that the proposal is a ‘new’

independent organisation with a new board (including representation from the

existing agencies) and management and like other current organisations AVCGA

(Vic) will also need to rebrand themselves and accept the changes that come with

the establishment of the new organisation. This reform proposal is not a proposal

that all current units amalgamate into the existing AVGA (Vic) structure at all. This is

an important point of difference and AVCGA (Vic) believed warranted further

explanation in order to allay any concerns to what is truly intended.

The new organisation be integrated into the establishment of Emergency

Management Victoria and have a reporting relationship to the Emergency

Management Commissioner.

The functions of the new marine rescue organisation include:

o Lead the development of a State Marine Rescue Plan, in consultation with

Victoria Police and other emergency management partners;

o Promote safer boating and aquatic activity through a proactive community

engagement and education program, integrated into other statewide

programs as required;

o Develop polices, procedures and standards for the provision of marine

rescue services in Victoria, in consultation with the Emergency Management

Commissioner;

o Provision of volunteer marine search and rescue in support of Victoria Police

to locate and assist vessels in distress, whether at on inland, enclosed or

coastal waters and bring the vessel and its occupants to safety, or if not

feasible recovering and bringing the occupants to safety’;

o Accredit and audit units and members involved in the provision of marine

rescue services across Victoria;

o Central and prudent financial management for marine rescue, incorporating

the coordination and endorsements for grant funding applications based on

a structured and prioritised statewide strategy and identified need;

o Provide waterborne support and platforms to other emergency

management agencies, including the provision of support to the states fire

services in the provision of marine firefighting capability and capacity;

- Page 59 of 89 -


o Be the Registered Training Organisation (RTO) for marine rescue training

and provide training and development for the boating community, public,

industry, members of the emergency management community and its own

marine rescue members;

o Procure, maintain and provide facilities, vessels, vehicles, equipment and

other resources to support the provision of marine rescue across Victoria;

o Ensure an appropriate communications and monitoring system exists within

the marine rescue environment for both the community and marine rescue

services

o Provide advice to Government on marine rescue activities, grant

applications associated with marine rescue services in accordance with the

State Marine Rescue Plan and associated elements;

o Act as the single liaison point and conduit for Victoria Police for volunteer

marine rescue services (excluding operational line of control which is direct

from Police to the relevant unit/s);

o Provider advocacy for and represent marine rescue volunteers and the

organisation on State and National committees and volunteer marine rescue

forums excluding the National Search & Rescue Committee which remains

the province of Victoria Police;

o Development and execution of initiatives and programs encourage, maintain

and strengthen the capacity of volunteers to support marine rescue

activities, including the engagement of youth and member support and

welfare programs;

o Procure and manage all insurances, claims and interfaces on behalf of all

marine rescue units;

o Establish and manage the brand capital of Coast Guard Victoria;

o Seek other alternative funding opportunities to support the core functions

of the organisation and marine rescue in general.

The establishment of Coast Guard Victoria as a company limited by guarantee with a

Board consisting of a maximum of nine (9) members made up of:

o Independent Chair (1)

- Page 60 of 89 -


o Elected representatives of the former volunteer marine rescue organisations

proportionate to their membership numbers (5) – made up of AVCGA (Vic)

3, VMR/SPRC 1, Ocean Rescue 1

o Victoria Police representative (1)

o Independent directors (2) – one having skills and experience in

volunteerism/emergency management and the other having

commercial/financial management skills and experience

The provision of a funding stream from Government for:

o Once-off allocation of seed funding for the start-up/establishment of Coast

Guard Victoria

o Ongoing recurrent expenditure for the operation of Coast Guard Victoria

(including the appointment of staff) via a levy on boat registrations and

licences and a Government contribution

o Ongoing access to appropriate grants in relation to marine, emergency

management, volunteerism and community building

The following diagram outlines AVCGA (Vic)’s proposed organisational structure for Coast

Guard Victoria and identifies proposed:

Reporting relationships

Representations

Opportunities for amalgamation at the local level and the reduction in overlapping

responsibilities and resources (which may in fact free-up this capacity for

redeployment to other areas in need)

- Page 61 of 89 -


Minister Police and Emergency Management

Emergency Management Commissioner

(Victoria)

CEO Emergency Management

Victoria

Chief Commissioner Police

(Victoria)

Figure 27 – AVCGA (Vic) Proposed Structure – Coast Guard Victoria

Board Coast Guard

Victoria Agency Joint Committees, Advisory

Committees and General Internal Consultative and Volunteer Representation

Structures

Marine DERC

CEO

Coast Guard Victoria

LOCAL MARINE RESCUE UNITS

Locally Empowered, Trained & Accredited Units

Risk Driven Capability

Common Operating Framework & Standards

Opportunity for capacity driven ‘all-hazard’ service provision to broader emergency management community

COMMUNITY

Region Manager (Western Region)

Region Manager (Central Region)

Region Manager (Eastern Region)

State Training Manager

Chief Financial Officer

Training Instructors

Community & Member

Development Manager

Executive Assistant

Werribee CGU

Geelong CGU

Queenscliff CGU

Torquay CGU

Apollo Bay CGU

Warrnambool CGU

Portland CGU

St Kilda CGU

Sorrento CGU

Carrum CGU

Frankston CGU

Safety Beach CGU

Westernport CGU

Inverloch CGU

Port Welshpool CGU

Port Albert CGU

Sale CGU

Paynesville CGU

Lakes Entrance CGU

Marlo CGU

Mallacoota CGU

State Headquarters

Direct activation & control of MRU’s during operations via RCC/Water Police

Notes 1. Westernport CGU is an

amalgamation of Hastings AVCG & Hastings VMR

2. Frankston CGU is an amalgamation of Frankston AVCG & Mornington VMR

RCC R

efer No

tes R

efer No

tes

- Page 62 of 89 -


Enabling Financial Contribution

The above proposed structure will drive standardisation and the more efficient and effective

use of resources and ultimately the drain on the public purse. However this needs to be

enabled by a funding commitment and contribution by Government. The following broad

budget assumptions have been developed for the consideration of the Inquiry.

The following provides a proposed financial plan to facilitate the establishment and

functioning of the new consolidated entity (Coast Guard Victoria):

”Once-off/Seed Funding”

In order to establish the new consolidated entity it is proposed that Government provide a

once-off interest free loan to the entity of $1.5M to be paid back over a 5-year period. This

funding will cater for employment of key staff, initial set-up, branding, new uniforms and

base infrastructure.

Recurrent Budget/Contributions

The following provides an overview of the proposed budget and funding contribution

arrangements for the functioning of the new consolidated entity (Coast Guard Victoria). It is

forecast using actual data the accurate costs of the existing AVCGA (Vic) and applied these

unit level costs to the additional independent units that would fall under the new entity. Of

note is a proposal that a 4% levy on boat licence and registrations be used as a part

contribution to the income (revenue) requirements of the entity given these individuals are

potential users of the service. This is a similar arrangement to what applies in NSW and also

how the Transport Accident Commission (TAC) provides funding support to the three

agencies (MFB,CFA,SES) who conduct for road accident rescue.

Income (excluding Grants)

Government contribution 1,997,254

4% boat registration & licence levy 774,115

Commercial RTO Training 200,000

Donations 20,000

Fundraising 20,000

MIR Fuel Reimbursement 85,556

Total 3,096,925

- Page 63 of 89 -


Expenditure

Recurrent major expenditure items

Expenses (excluding depreciation) Insurance 204,778

Fuel (Training & Ops) 578,293

Staff Costs 1,110,000

Membership Costs 43,352

Unit Allowance 22,000

Security 2,444

Facilities (Unit) Facilities (HQ) Utilities Volunteer Training 204,778

Audit costs 62,309

Bank Charges Cleaning Conference Expenses 3,000

ICT Consultants 30,000

Postage Fundraising 10375

Government Charges Legal Fees Meeting Expenses 2,000

Motor Vehicle Running Costs 51,264

Printing & Stationery 43,525

Rent 41,526

Repairs & Maintenance 139,233

PPE 128,500

Telephone & PC 199,035

Travel & Accommodation 38,400

Volunteer ammenities (Purchases) 37,863

Advertising 144,248

Total 3,096,925

It is anticipated the new entity, in developing its strategic plan, will focus on alternative

revenue generation opportunities, commercial opportunities, industry partnerships and

resource sharing opportunities (public and private). If successful this will reduce the reliance

on and cost to Government.

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Coast Guard Recommendations That the Inquiry into Marine Rescue should recommend:

4. The definition of ‘marine rescue’ be the locating and assisting vessels in distress, whether at sea or on inland waters and bringing the vessel and its occupants to safety, or if not feasible recovering and bringing the occupants to safety.

5. The introduction of a standard accreditation process for marine rescue in Victoria. 6. The bringing together of existing volunteer based marine rescue organisations into a

new consolidated marine rescue organisation as a company limited by guarantee with a board consisting of an independent chair, representatives of former marine rescue organisations, Victoria Police and independent directors.

7. The new consolidated entity is called Coast Guard Victoria. 8. The functions of the new consolidated entity be:

Lead the development of a State Marine Rescue Plan, in consultation with Victoria Police and other emergency management partners;

Promote safer boating and aquatic activity through a proactive community engagement and education program, integrated into other statewide programs as required;

Develop polices, procedures and standards for the provision of marine rescue services in Victoria, in consultation with the Emergency Management Commissioner;

Provision of volunteer marine search and rescue in support of Victoria Police to locate and assist vessels in distress, whether at on inland, enclosed or coastal waters and bring the vessel and its occupants to safety, or if not feasible recovering and bringing the occupants to safety’;

Accredit and audit units and members involved in the provision of marine rescue services across Victoria;

Central and prudent financial management for marine rescue, incorporating the coordination and endorsements for grant funding applications based on a structured and prioritised statewide strategy and identified need;

Provide waterborne support and platforms to other emergency management agencies, including the provision of support to the states fire services in the provision of marine firefighting capability and capacity;

Be the Registered Training Organisation (RTO) for marine rescue training and provide training and development for the boating community, public, industry, members of the emergency management community and its own marine rescue members;

Procure, maintain and provide facilities, vessels, vehicles, equipment and other resources to support the provision of marine rescue across Victoria;

Ensure an appropriate communications and monitoring system exists within the marine rescue environment for both the community and marine rescue services

Provide advice to Government on marine rescue activities, grant applications associated with marine rescue services in accordance with the State Marine Rescue Plan and associated elements;

Act as the single liaison point and conduit for Victoria Police for volunteer marine rescue services (excluding operational line of control which is direct from Police to the relevant unit/s);

Provider advocacy for and represent marine rescue volunteers and the organisation on State and National committees and volunteer marine rescue forums excluding the National Search & Rescue Committee which remains the province of Victoria Police;

Development and execution of initiatives and programs encourage, maintain and strengthen the capacity of volunteers to support marine rescue activities, including the engagement of youth and member support and welfare programs;

Procure and manage all insurances, claims and interfaces on behalf of all marine rescue units;

Establish and manage the brand capital of Coast Guard Victoria;

Seek other alternative funding opportunities to support the core functions of the organisation and marine rescue in general.

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Coast Guard Recommendations (continued) That the Inquiry into Marine Rescue should recommend: 9. The provision of a funding stream from Government for:

Once-off allocation of seed funding for the start-up/establishment of Coast Guard Victoria

Ongoing recurrent expenditure for the operation of Coast Guard Victoria (including the appointment of staff) via a levy on boat registrations and licences and a Government contribution

Ongoing access to appropriate grants in relation to marine, emergency management, volunteerism and community building

- Page 66 of 89 -


This section covers the following Terms of Reference of this Inquiry: d) investigate the legislation that enables and governs search and rescue activities in Victoria and provide recommendations on improvements

THE LEGISLATIVE FRAMEWORK

The applicable legislative regime to marine rescue is a matter for Government. Although

AVCGA (Vic) makes the following comments for consideration of the Inquiry in respect to

whether or not legislative change is necessary:

The outcomes of the Inquiry and the provision of marine rescue services across

Victoria needs to be integrated with and facilitated by changes to legislation being

made as a consequence of the emergency management reform program emanating

out of the White Paper process

In recognition of the vital importance of volunteers not only as the only viable

resource model for Victoria’s risk context, including marine rescue, but also as the

cornerstone to active community participation, shared responsibility and community

resilience, any legislation applicable to marine rescue services must incorporate

legislative responsibility to:

o Facilitate portability of operations within an all-hazards operating

environment, including common training and education on legislative

responsibilities, powers and protections

o Empowers marine rescue staff and volunteers to manage the activities at a

local and organisational level and most importantly rovides legislative

protections for volunteer participation

o Drive a marine rescue and emergency management sector-wide culture,

values and behaviours that recognise the majority of Victoria’s emergency

service agencies are first and foremost volunteer based organisations in

which volunteer officers and members are supported by employees in a fully

integrated manner

o Recognise a Volunteer Charter as the statement of the commitment and

principles that apply to the relationship between Government, the agencies

and volunteer officer and members

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o Recognise, value, respect and promote the vital importance of volunteers

not only as the only viable resource model for Victoria’s risk context but also

as the cornerstone to active community participation, shared responsibility

and community resilience

o Consult and engage with volunteers and their representative body on all

matters that affect them or volunteerism in general

o Develop policy and organisational arrangements that encourage, maintain

and strengthen the capacity of volunteerism across the sector

If persuaded to adopt the consolidated organisational model proposed by AVCGA

(Vic) to either establish and/or empower this via legislation and/or related statutory

rules, policy or procedures

Ensure the new role, responsibility and powers of the Emergency Management

Commissioner incorporate the ability to lead marine rescue services within the

State, with control agency responsibilities remaining with Victoria Police

AVCGA (Vic) submit that any proposed legislative changes in respect to marine rescue will

inevitably affect volunteers and therefore should be the subject of consultation through the

Ministers Volunteer Consultative Committee, in accordance with Governments

commitments in the White Paper and the terms of reference of this committee.


10. Any legislative changes must be integrated into and facilitated by changes being pursued as part of the emergency management reform program, empower and recognise the volunteers involved in the provision of marine rescue services across the State

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MONITORING AND COMMUNICATIONS PROCESSES

As highlighted in several post emergency event inquiries, communications is the lifeblood of

effective and efficient emergency management and something that quite often is an

identified weakness in the management of the emergency event. This is no different in the

marine rescue context and in fact is more important given the complex nature of the

operating environment that may involve severe limitations on the available communications

infrastructure and media for both the person/s involved and the marine rescue operators.

AVCGA (Vic) has been a staunch advocate for the retention and improvement of

communications systems for many years and has maintained through its own funds and

volunteer support a border-to-border communications network. In considering these

fundamental issues the Inquiry needs to consider both the communications and monitoring

networks available to the boating community and the operational communications and

monitoring networks available and utilised by marine rescue agencies. These are discrete

and equally important aspects of communications and monitoring systems within the

marine rescue context. AVCGA (Vic) remain concerned that recent changes to the proposed

arrangements and devolution of these to the private sector ‘may’ result in a reduced service

than is currently available. However, AVCGA (Vic) look forward to and remain ready to work

with and support whoever is successful in the competitive tendering processes currently

being undertaken by Government.

Existing Monitoring and Communications Networks

As outlined above communications and monitoring needs to be considered in the two

contexts of that available to the boating community and that available and utilised by

marine rescue agencies. The following outlines the current systems available within this

context.

Marine Distress Emergency Monitoring System (MDEMS)

The Victorian Government has recently put to tender a proposal to build and operate a

border-to-border VHF network in order to monitor the International Distress and Calling

This section covers the following Terms of Reference of this Inquiry: e) review existing marine monitoring and communications processes underpinning rescue services and provide advice on improvements which could be considered

- Page 69 of 89 -


Frequencies of Channel 16 & 67 for most recreational, fishing and small commercial trading

craft.

It is intended this system will become the formal Government supported radio monitoring

arrangement, Coast Radio Melbourne (CRM), and replace the current service provided by

the Port of Melbourne (PoMC) under a Service Level Arrangement with the Department of

Transport, Planning and Local Infrastructure (DOTPLI) as well as that provided by AVCGA

(Vic). At present PoMC has subcontracted the voice-monitoring component of the service

provision to Kordia Pty. Ltd. This service covers the waters of Port Phillip and Western Port

bays only and monitors both VHF (channels 16 and 67) and HF radios. Informal ad-hoc

monitoring services provided by volunteers on a “best endeavours” basis exist along the

remainder of the Victorian coast. In addition AVCGA (Vic) monitors distress channel 16 and

channel 67 in the Gippsland Lakes area and up to 80 km offshore.

A component of the tender process required potential providers to consult with AVCGA

(Vic), which has occurred and AVCGA (Vic) remains ready and willing to work with and

support whomever is the successful tenderer.

It is synergistic in the marine environment to the Triple 000 system that operates for land-

based emergencies and notification to the emergency services and as such AVCGA (Vic)

maintain this is an essential system and needs to be a significant consideration of the

Inquiry.

AVCGA (Vic) Operational Repeater Network

The AVCGA (Vic) operates a border-to-border repeater radio network along the length of the

Victorian coastline, from Portland to Mallacoota.

The network operates on the VHF Marine band and is a public station monitored by the

AVCGA (Vic). AVCGA (Vic) built the network with funding from the Federal Government,

Telstra and Marine Safety Victoria (MSV).

The benefits of the VHF Repeater Network include:

VHF marine coverage in key boating locations

Clearer signals and greater range

Regular monitoring of distress channel 16 and channel 67 in the Gippsland Lakes

area and up to 80km offshore

Combined with the Offshore Tracking Sheets system; AVCGA (Vic) use the network

to keep a ‘listening watch’ when vessels are known to be in transit

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Figure 28 –Repeater Network48

This network is utilised by AVCGA (Vic) for operational communications during marine

rescue, general patrol and training activities. It provides border-to-border communications

capability between vessels and Coast Guard Melbourne (Sandringham). It is synergistic in

the marine environment to the Metropolitan Mobile Radio (MMR) system utilised by the

Police, Ambulance and MFB for communications within and between the agency as well as

to the Emergency Services Telecommunications Authority (ESTA) for call taking and dispatch

services. As identified by Government in the establishing and providing significant support

for this system which involved the implementation of ESTA and centralised call taking and

dispatch for the State’s emergency services agencies, coordinated and interoperable

systems are advantageous both financially and operationally. This scenario is no different

for marine rescue.

Unfortunately with the disparate arrangements that operate for marine rescue there is not a

single universal communications system which all units operate on. In AVCGA (Vic) opinion

this is essential for effective and efficient marine rescue operations. The AVCGA (Vic)

network exists and is operationally effective and is an opportunity for consolidation of

operational communications statewide.

At present the monitoring of this system relies on volunteers, which through their best

endeavours manage this system as best they can. Can this be improved, of course it can.

AVCGA (Vic) submit that the Inquiry should:

Adopt the principle of having a single operational communications system and

infrastructure for all marine rescue operations across the State; and

Explore ways this system can be strengthened to cater for marine rescue within

Victoria, including:

48

AVCG, VHF Repeater Network 2008

- Page 71 of 89 -


o 24/7 monitoring with automatic logging and voice recording for follow-up

review and inquiries

o Centralised call-taking and dispatch arrangements, integrated into the

Victoria Police RCC processes

o Strengthening and modernising the infrastructure and system (potentially

through expanding the collaborative arrangements that AVCGA (Vic) have

planned with cross utilisation of CFA infrastructure and support)

o Proactive community engagement and education processes

o Volunteer recognition and support

Consider ESTA as a potential partner and technical expert to support marine rescue

communications and monitoring

The proposed consolidated organisation model proposed by AVCGA (Vic) can facilitate and

support the implementation of efficient and effective communications and monitoring

systems for marine rescue in Victoria.

AVCGA (Vic) SafeTrx App

AVCGA (Vic) SafeTrx is a smartphone App for both Android and Apple iOS devices (iPhone,

iPad) that allow a user to have their journey recorded and monitored in the event of an

emergency.

The App requires users to input their trip details before heading out on the water and it will

track the user’s movements and trigger an alert if the user has not returned on schedule and

logged off the system.

The AVCG has the Australian rights to the app. The app is currently being trialled with

monitoring being undertaken by the AVCGA (VIC) from the Sandringham base. After the trial

period, it is intended to commercialise the app, with an estimated cost of around $2 per

month. Revenue would be divided equally between the app developer and AVCG.

This new technology is not being developed as an alternative to VHF radio or emergency

beacons. The SafeTrx is an additional tool aimed to boost the already existing technology

that assist in saving lives on the water.

There is great potential to expand the utilisation of this app and alleviate a number of

current manual monitoring systems and to integrate this into the overall call taking and

dispatch arrangements outlined above.

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Figure 29 – Images - SafeTrx app


11. A thorough user acceptance testing regime be implemented with the introduction of the new Marine Distress Emergency Monitoring System introduction and AVCGA (Vic) should be heavily involved in this testing.

12. The mandated adoption of a single operational communications system and infrastructure for all marine rescue operations across the State

13. Explore ways the existing AVCGA (Vic) repeater system can be strengthened to cater for marine rescue and become the single operational communications system for use across Victoria

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TRAINING & DEVELOPMENT

Training and development of both members of marine rescue services and the broader

community is fundamental to managing risk and ensuring safety for all involved in boating

and broader marine based activities across Victoria. AVCGA (Vic) take these responsibilities

extremely seriously and as such have become a Registered Training Organisation (RTO) and

an accredited provider of marine education by Transport Safety Victoria (TSV). This enables

AVCGA (Vic) to deliver consistent and nationally accredited training and to ensure its

members have the requisite skills commensurate with risk and the role they are

undertaking. Unfortunately AVCGA (Vic) do not believe this is universal across the marine

rescue sector and submit that relevant standards should be promulgated as a pre-requisite

to being able to become accredited as a marine rescue unit and to perform operational roles

within the marine rescue environment.

AVCGA (Vic) mandate, in accordance with defined standards promulgated by the regulator

(Transport Safety Victoria) minimum requirements and a training pathway for its members.

This involves a progressive opportunity to acquire new skills and qualifications as well as

meeting mandated skills maintenance requirements to remain accredited. In part this is no

different to the ‘maintenance of operational standards requirements49 of an accredited road

accident rescue unit within Victoria as outlined within the Road Rescue Arrangements

Victoria policy document. AVCGA (Vic) submit this should be the approach adopted by the

Inquiry for marine rescue services within Victoria.

AVCGA (Vic) Training Pathway

As outlined above all operational members of AVCGA (Vic) are required to meet minimum

training requirements prior to being accredited for operational duties. This process has

regard for recognition of prior learning and qualifications but still requires agency specific

translation and validation of competency (e.g. a qualified Coxswain may join AVCGA (Vic)

and his coxswain qualifications are recognised but he is still required to undertake AVCGA

49

Road Rescue Arrangements Victoria – Policy Document, 2010, page 6

This section covers the following Terms of Reference of this Inquiry: f) review the training and development needs for marine rescue service providers and provide recommendations on improvements

- Page 74 of 89 -


(Vic) induction, familiarisation of AVCGA (Vic) procedures and equipment and completion of

any additional public safety units that the coxswain may not possess prior to being able to

validate his competency and accredit him to operate as a coxswain within AVCGA (Vic)).

The training pathway for AVCGA (Vic) members includes the following training

opportunities:

Figure 30 – AVCGA (Vic) Training Pathway

In addition to the above and concurrent with the training pathway, specialist training is also

available including radio operations and advanced communications, first-aid, training and

assessment as well as more broader administrative and leadership training. Some of this

requires skills maintenance (e.g. first-aid/CPR annual reaccreditation).

Given its lengthy and successful history training marine rescue personnel and the

community AVCGA (Vic) is well versed in the delivery and structure of training

commensurate with the volunteer nature of the organisation and its operating environment.

Within the above pathway, AVCGA (Vic) training includes internal and external alignment to

national standards. The specific layers of the pathway cover:

For successful completion of the Recruit Training members are required to:

o Attend an approved safety induction course;

Coxswain

Advanced Crew

Competent Crew

Recruit Training

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o Gain a seamanship qualification; and

o Complete, showing competence in, a course on the Structure, Aims and

Objects of the Association (as approved by the National Board).

At the Competent Crew and Advanced Crew training, members start to complete

modules aligned against the national qualification framework and by the time they

complete their Advanced Crew training they will have completed the Certificate I in

Maritime Operations.

Progression to Coxswain sees members complete the national qualification of

Certificate II in Maritime Operations as well as some additional public safety units.

The content of the Certificate II in Maritime Operations program, for which AVCGA

(Vic) is an accredited training provider for by Transport Safety Victoria, is outlined

below for the information of the Inquiry. Upon reaching Coxswain level, members

will have successfully completed some 30 modules along the way as well as

demonstrated the ability to control a boat and crew.

The following tables outlines for the Inquiry the numbers of members trained at each level

within AVCG (Vic). This not only demonstrates the organisations commitment to training

but also the nationally accredited capability that exists within AVCG (Vic).

Figure 31 – AVCGA Qualifications & Capability

Level Trained & Qualified

Coxswain 248

Advanced Crew 131

Competent Crew 175

In-training 116

TOTAL 670

Certificate II in Maritime Operations (AVCG Coxswain), for example, consists of 11 areas

each involving up to nine units.

An outline of this course includes:

Equipment checking and maintenance

o Monitor condition and seaworthiness of a small vessel;

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Manoeuvre vessel

o Apply seamanship skills and techniques when operating a small domestic

vessel;

o Manoeuvre vessel less than 24m in length within in-shore limits;

o Manoeuvre a domestic vessel less than 12 m in length within in-shore limits

depending on Flotilla vessels;

Communications

o Communications in the workplace;

o Transmit and receive information by marine radio or telephone (MROCP

Licence);

Operational quality and safety

o Assist in search and rescue operations;

o Respond to navigational emergencies;

o Observe safe working practice and procedures on board a vessel;

o Provide first aid;

o Survive at sea in the event of vessel abandonment;

o Minimise the risk of fire and maintain a state of readiness to respond to

emergency situations involving fire;

o Apply domestic regulations when operating a small vessel;

o Fight and extinguish fires on board small vessels;

Navigation

o Use radar to maintain safe navigation;

o Plan and navigate an inshore passage;

o Plan and navigate a short voyage within inshore limits;

o Apply weather information when navigating a small vessel;

Human resources

o Work in a team;

Carry out operations on equipment and systems

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o Operate and carry out basic maintenance on small vessel propulsion

systems;

o Operate and carry out basic servicing on auxiliary systems;

o Operate and carry out basic routine servicing of marine extra low and low

voltage electrical systems;

o Assist in mooring and anchor handling activities;

Environment

o Ensure compliance with environmental considerations in a small domestic

vessel;

Equipment checking and maintenance

o Prepare maintain and test response equipment;

Carry out operations

o Supervise response;

o Conduct briefings and debriefings;

o Provide emergency care;

o Participate in marine rescue operations;

Training and assessment

o Plan, conduct and review assessment;

o Train small groups.

Registered Training Organisation

The Australian Volunteer Coast Guard Association Inc. Victorian Squadron is a Registered

Training Organisation (RTO) with the Australian Skills Quality Authority (ASQA). Within its

scope of registration50 it is able to deliver the following:

Qualifications

Code Title Extent NSW VIC QLD SA WA TAS NT ACT

TDM10107 CERTIFICATE I IN TRANSPORT DISTRIBUTION (MARITIME OPERATIONS)

Deliver and assess

TDM20107 CERTIFICATE II IN TRANSPORT DISTRIBUTION (MARITIME

Deliver and assess

50

training.gov.au/organisation/details/5508

- Page 78 of 89 -


OPERATIONS)

TDM20307 CERTIFICATE II IN TRANSPORT & DISTRIBUTION (COASTAL MARITIME OPERATIONS – COXSWAIN)

Deliver and assess

Units of competency

Code Title Extent NSW VIC QLD SA WA TAS NT ACT

PUACOM001C Communicate in the workplace

Granted

PUACOM002B Provide services to clients Granted

PUACOM007B Liaise with other organisations

Granted

PUAEQU001B Prepare, maintain and test response equipment

Granted

PUAOPE001B Supervise response Granted

PUAOPE004B Conduct briefings/debriefings

Granted

PUATEA001B Work in a team Granted

Delivery

Note: The Delivery Notification matrix of state/territories represents regions where the RTO has previously notified it has commenced delivery. It is not an indication of the availability of the training product, from the RTO, within a particular state or territory. Individuals should contact the relevant RTO to confirm all delivery details of different training products.

Scope Date of change

Notification NSW VIC QLD SA WA TAS NT ACT Overseas

PUACOM001C 06/Feb/2009 Commencement

PUACOM002B 06/Feb/2009 Commencement

PUACOM007B 06/Feb/2009 Commencement

PUAEQU001A 15/Jul/2008 Commencement

PUAEQU001B 18/Aug/2012 Commencement

PUAOPE001A 15/Jul/2008 Commencement

PUAOPE001B 18/Aug/2012 Commencement

PUAOPE004B 06/Feb/2009 Commencement

PUASAR001A 15/Jul/2008 Commencement

PUASAR001B 18/Aug/2012 Commencement

PUATEA001B 06/Feb/2009 Commencement

TDM10107 04/Jan/2008 Commencement

TDM20107 04/Jan/2008 Commencement

TDM20307 08/Feb/2010 Commencement

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Not only does being an RTO provide the opportunity for AVCGA (Vic) to deliver consistent

and nationally recognised training to its members, it also provides a commercial and

alternative revenue generating opportunity for the organisation. This commercial

opportunity is an identified potential area of growth for the organisation.

It is axiomatic to say but under the national training standards set by ASQA all trainers and

assessors need to be appropriately qualified in training and assessment as well as being

subject matter experts. Therefore, Coast Guard is the obvious choice for the ongoing

provision of this training across the sector. There may be broader collaborative

opportunities to work in partnership with Life Saving Victoria as an RTO to expand the

horizons of this training and the commercial opportunities presented by this foer the mutual

benefit of both organisations.

Community Education

As well as education for its own members, the AVCGA (Vic) has developed programs for

community education. Community education includes boat safety campaigns in the popular

press, and public instruction courses open to the community.

In this regard AVCGA (Vic) is also a Transport Safety Victoria accredited training provider for

recreational boating licences. There are 11 TSV accredited training providers in Victoria

including:

Australian Boating College (ABC) – Licence Training

Australian Volunteer Coast Guard (AVCG)

Boating Victoria

Construction Training International

First Aid Management and Training Centre

Gascoigne Training and Assessment

LP Communications

Marine Training Services

SEAMEC (East Gippsland Institute of TAFE)

Seaton Training Pty Ltd

South West TAFE

The AVCGA (Vic) conduct boat licence courses from a variety of locations, including: Ballarat,

Bendigo, Braeside, Carrum, Frankston, Geelong, Hastings, Lake Hume, Queenscliff, Safety

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Beach, Sandringham, Shepparton and Werribee. Over the last eight years more than 17,000

people have undertaken public courses run by the AVCGA (Vic).

AVCGA (Vic) have also developed:

AVCG GPS Operation Program with classes designed for students to familiarise themselves

with various operational components of GPS systems.

The courses include navigational components such as:

The latitude and longitude grid;

Plotting positions;

Controls;

Data entry;

Man overboard and practical operation.

This course consists of two 2.5 hour sessions over two weeks. Participants are examined at

the conclusion of the course.

AVCG Public Coastal Navigation Program that is designed to enable boat owners to safely

undertake a coastal passage.

Components include tuition on the following:

Charts;

Mercator projection;

Measurement of direction;

The compass;

Deviation;

Tides and currents;

Buoyage system ‘A’;

Types of marks.

This course is run over ten weeks with one 2-hour class per week. There is an examination

at the end of the course.

AVCG Vessel Examination Program that involves a check of boat equipment with regard to

safety standard and minimum requirements of State boating regulation. This examination is

compulsory for all Australian owned vessels and members’ vessels utilised in operational

assistance. The service is available to the public as a courtesy service.

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Minimum Requirements

Notwithstanding the internal requirements specified for training, AVCGA (Vic) must also

comply with national/state regulatory requirements for the use of its vessels in certain

operating environments.

The following figure outlines these requirements against survey class of vessel and national

as well as AVCGA (Vic) standards:

Figure 32 – Qualifying Sea Time51

Survey Class

Distance Limits

Master Competency Prerequisite

Sea time

Minimum Standards Prerequisite Sea time Crew Competency

2C To 15 Nm Coxswain Cert II 220 hrs 1 Cert I Nil

2C To 15 Nm AVCGA (Vic)

Coxswain

Cert II Includes

Public Safety Units

& CG units

320 hrs 2 1xComp.Crew Nil

1xAdv. Crew 120 hrs

In accordance with the above:

Qualifying sea time is measured in days spent performing the tasks appropriate to

the class of certificate to which it applies

Qualifying sea time is calculated in days, a day is a minimum of 7.5 hours

The hours for calculating one day can be accumulated over more than one day (i.e.

3.5hrs performed on one day can be carried over to the next day until the person

has a total of 7.5hrs to make one day of sea time)

Sea service must be accrued whilst vessel is underway (i.e. can not be accumulated

when the vessel is moored)

The primary operational area for a voyage is to be recorded. If a voyage includes

transiting through areas of operation (e.g. sheltered water to operate in open water)

the area of operation is recorded as open water

AVCGA (Vic) Coxswains must achieve one-day sea time per month. (7.5

hours/month)

The consequential impact of the above, regardless of the additional AVCGA (Vic) specific

requirements, is the mandated national requirements of sea time to maintain competency.

This has a flow-on effect to AVCGA (Vic) in the use of vessels and associated costs. These

costs are not reimbursed or funded by the State and/or Water Police and need to be funded

by AVCGA (Vic). This is an unrealistic expectation and is critical to the maintenance of

51

National Standard for Commercial Vessel – Certificate of Competency (Part D)

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service delivery to the community and business continuity. The Inquiry is encouraged to

examine this issue closely and to consider this in the context of its findings and the AVCGA

(Vic) reform proposal outlined earlier in this submission.


14. Relevant training standards should be promulgated as a pre-requisite to being able to become accredited as a marine rescue unit and to perform operational roles within the marine rescue environment.

15. The approach adopted for Road Accident Rescue Unit accreditation and maintenance of accreditation for application for marine rescue services within Victoria.

16. The Government make available a revenue stream to cater for the minimum skills maintenance requirements to maintain currency for crew members in accordance with national/state regulator standards and alleviate consequential cost impost to Coast Guard in the interest of business continuity and service delivery to the community.

17. Government supports the integration of the Coast Guard RTO as the training provider for marine rescue services across the State.

- Page 83 of 89 -


CONCLUSION

The contents of this submission clearly demonstrate the increasing need for an effective and

efficient marine rescue service in Victoria commensurate with the increasing boating activity

occurring within the State. The service has lacked foresight and has evolved with the best

endeavours of its forbearers and current members over its history. This Inquiry provides the

opportunity to shape the structure and provision of efficient and effective marine rescue

services for the future. In doing so it is an opportunity to integrate marine rescue into the

current emergency management reform program and for Victoria to lead the way in the

provision of this service to the boating community.

To get this right a stepped change is necessary as is the commitment of support and funding

from Government for the service to remain viable. The current hand to mouth funding

arrangements that relies on grants, fundraising and donations is not sustainable and will be

to the detriment of the safety of Victorian boat users if not rectified.

AVCGA (Vic) has proposed a number of significant reform opportunities within this

submission and strongly encourages the Inquiry to give then serious thought. Without this

level of reform unfortunately the provision of marine rescue within Victoria will continue to

falter.

AVCGA (Vic) applauds Government for the initiation of this Inquiry and hopes that its

outcomes provide significant benefit to the State into the future.

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SUMMARY OF RECOMMENDATIONS FOR IMPROVEMENT

Recommendation

Number

AVCGA (Vic) Recommendation

That the Inquiry into Marine Rescue should recommend:

1 Victoria Emergency Management Arrangements split the responsibility

for Life Saving (Shoreline and Beach patrolling and rescue) and Marine

Rescue

2 Coast Guard be recognised and included as a key support agency within

the Emergency Management Manual Victoria (EMMV)

3 Development of a single integrated State Marine Rescue Plan (in line

with the frameworks and reforms outlined within the White Paper)

consisting of:

State Marine Risk Assessment

Statewide policy

Doctrine

Standards

Statewide marine rescue capability assessment

Responsibilities

Command and control arrangements

Training & exercising

Communications

Reporting arrangements

Community engagement and education strategy

4 The definition of marine rescue be ‘the locating and assisting vessels in

distress, whether at sea or on inland waters and bringing the vessel and

its occupants to safety, or if not feasible recovering and bringing the

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occupants to safety’.

5 The introduction of a standard accreditation process for marine rescue

in Victoria.

6 The bringing together of existing volunteer based marine rescue

organisations into a new consolidated marine rescue organisation as a

company limited by guarantee with a board consisting of an

independent chair, representatives of former marine rescue

organisations, Victoria Police and independent directors.

7 The new consolidated entity is called Coast Guard Victoria.

8 The functions of the new consolidated entity be:

Lead the development of a State Marine Rescue Plan, in

consultation with Victoria Police and other emergency

management partners;

Promote safer boating and aquatic activity through a proactive

community engagement and education program, integrated

into other statewide programs as required;

Develop polices, procedures and standards for the provision of

marine rescue services in Victoria, in consultation with the

Emergency Management Commissioner;

Provision of volunteer marine search and rescue in support of

Victoria Police to locate and assist vessels in distress, whether

at on inland, enclosed or coastal waters and bring the vessel

and its occupants to safety, or if not feasible recovering and

bringing the occupants to safety’;

Accredit and audit units and members involved in the provision

of marine rescue services across Victoria;

Central and prudent financial management for marine rescue,

incorporating the coordination and endorsements for grant

funding applications based on a structured and prioritised

statewide strategy and identified need;

Provide waterborne support and platforms to other emergency

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management agencies, including the provision of support to the

states fire services in the provision of marine firefighting

capability and capacity;

Be the Registered Training Organisation (RTO) for marine rescue

training and provide training and development for the boating

community, public, industry, members of the emergency

management community and its own marine rescue members;

Procure, maintain and provide facilities, vessels, vehicles,

equipment and other resources to support the provision of

marine rescue across Victoria;

Ensure an appropriate communications and monitoring system

exists within the marine rescue environment for both the

community and marine rescue services

Provide advice to Government on marine rescue activities,

grant applications associated with marine rescue services in

accordance with the State Marine Rescue Plan and associated

elements;

Act as the single liaison point and conduit for Victoria Police for

volunteer marine rescue services (excluding operational line of

control which is direct from Police to the relevant unit/s);

Provider advocacy for and represent marine rescue volunteers

and the organisation on State and National committees and

volunteer marine rescue forums excluding the National Search

& Rescue Committee which remains the province of Victoria

Police;

Development and execution of initiatives and programs

encourage, maintain and strengthen the capacity of volunteers

to support marine rescue activities, including the engagement

of youth and member support and welfare programs;

Procure and manage all insurances, claims and interfaces on

behalf of all marine rescue units;

Establish and manage the brand capital of Coast Guard Victoria;

Seek other alternative funding opportunities to support the

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core functions of the organisation and marine rescue in general.

9 The provision of a funding stream from Government for:

Once-off allocation of seed funding for the start-

up/establishment of Coast Guard Victoria

Ongoing recurrent expenditure for the operation of Coast

Guard Victoria (including the appointment of staff) via a levy on

boat registrations and licences and a Government contribution

Ongoing access to appropriate grants in relation to marine,

emergency management, volunteerism and community building

10 Any legislative changes must be integrated into and facilitated by

changes being pursued as part of the emergency management reform

program, empower and recognise the volunteers involved in the

provision of marine rescue services across the State

11 A thorough user acceptance testing regime be implemented with the

introduction of the new Marine Distress Emergency Monitoring System

introduction and AVCGA (Vic) should be heavily involved in this testing

12 The mandated adoption of a single operational communications system

and infrastructure for all marine rescue operations across the State

13 Explore ways the existing AVCGA (Vic) repeater system can be

strengthened to cater for marine rescue and become the single

operational communications system for use across Victoria

14 Relevant training standards should be promulgated as a pre-requisite to

being able to become accredited as a marine rescue unit and to

perform operational roles within the marine rescue environment

15 The approach adopted for Road Accident Rescue Unit accreditation and

maintenance of accreditation for application for marine rescue services

within Victoria

16 The Government make available a revenue stream to cater for the

minimum skills maintenance requirements to maintain currency for

crew members in accordance with national/state regulator standards

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and alleviate consequential cost impost to Coast Guard in the interest

of business continuity and service delivery to the community

17 Government supports the integration of the Coast Guard RTO as the

training provider for marine rescue services across the State.

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This submission was prepared with the valuable assistance of:

G’Stream Pty Ltd ABN 69 154 465 077

54 Kearney Drive Aspendale Gardens Vic 3195

0419 392 340

[email protected]

Documents

SUBMISSION TO - Parliament of Victoria - · PDF file- Page 1 of 89 - SUBMISSION TO Economic Development, Infrastructure and Outer Suburban/Interface Services Committee INQUIRY INTO