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Guidance Note

Management of Outdoor Activities for Severe Weather Conditions

Guidelines for dependent groups

(Version 1 • November 2009)

PDF version (PDF 90KB)

Published by the Outdoor Recreation Centre Inc.

Supported by the Victorian outdoor industry and the Victorian State Government

Disclaimer

The information contained in this publication has been gathered through widespread industry consultation. All reasonable attempts have been made to ensure that it is accurate, relevant and current at the date of publication. Nevertheless, this document is only advisory and general in nature and should not be relied upon to meet individual or specific requirements. The contents are recommendations for voluntary use by adventure activity providers and participants. They are not binding on any person or organisation and have no legal force.

These guidelines will not cover each and every circumstance resulting from severe weather events. Nor can they, when adhered to, entirely eliminate the risk or possibility of loss or injury. Whenever using the information contained in this publication, all adventure activity providers should carefully evaluate the specific requirements of the intended activities and the persons participating. Advice should be obtained from a suitably experienced and qualified professional person if necessary.

This publication and the information it contains are made available on the express condition that Outdoor Recreation Centre Inc. Victoria (ORC A0015876E), the authors, consultants and advisors who have assisted in compiling and drafting this publication are not rendering professional advice to any person or organisation and make no warranties with respect thereto and to the maximum extent permitted by law disclaim all liability and responsibility for any direct or indirect loss, damage or liability which may be suffered or incurred by any person as a consequence of reliance upon anything contained in or omitted from this publication.

 

Recreation House, PO Box 1010, Templestowe, 3106

www.outdoorsvic.org.au

Feedback to AASreview@orc.org.au

Management of Outdoor Activities for Severe Weather Conditions

Guidelines for dependent groups

Contents

1 Introduction
2 Document Review
3 Part One - Planning
3.1 Activity Plans
3.1.1 General
3.1.2 Physical environment
3.1.3 Severe Weather Sites
3.1.4 Trigger Points
3.1.5 Communication
3.1.6 Local authorities
3.1.7 Training
4 Part Two – Considerations For Specific Events
4.1 Bushfire
4.1.1 Fire Danger Index
4.1.2 Total Fire Ban (Victoria)
4.1.3 Fire Danger Rating (FDR)
4.1.4 Trigger point actions
4.1.5 Radiant heat
4.1.6 Heat-related illness
4.1.7 Signs of fire are observed
4.1.8 Imminent threat
4.1.9 In a vehicle
4.2 Severe Wind
4.2.1 Severe Thunderstorm Warning
4.2.2 Severe Weather Warning
4.2.3 Gales
4.2.4 Coastal Waters Wind Warning
4.2.5 Action
4.3 Lightning Strike
4.3.1 Severe Thunderstorm Warning
4.3.2 The 30/30 rule
4.3.3 The 15 second rule
4.3.4 Lightning position
4.3.5 In a vehicle
4.4 Floods
4.4.1 Flash flooding
4.4.2 Riverine flooding
4.4.3 Action
4.5 Extreme Temperature – hot and cold
4.6 Blizzard
5 Definition of terms
6 Further information

1 Introduction

This document provides information and commonly agreed procedures for planning and responding to severe weather in the outdoors that involve led activities with dependent participants in Victoria. The nature and intensity of severe weather can vary across Australia and local resources should be consulted in conducting activities in other parts of Australia.

Severe weather conditions may result from various weather events and can be defined as any destructive weather phenomenon.

The document will enhance the capacity of organisations and leaders to develop and implement consistent policies and support decision-making to continue, modify or postpone planned activities. It should be read in conjunction with the activity specific Adventure Activity Standards (AAS).

2 Document Review

This document was developed in response to increasing concern over severe weather events. The project was initiated by the outdoor industry and facilitated by the Outdoor Industry Bushfire Taskforce (OIT).

The OIT was established immediately following the Black Saturday bushfires of February 2009. This taskforce includes senior representatives of the Outdoor Recreation Centre Victoria Inc. (ORC), Victorian Outdoor Education Association (VOEA), Australian Camps Association (ACA), Tourism Alliance Victoria (TAV) and is supported by the Department of Planning and Community Development (DPCD) represented by Sport & Recreation Victoria.

The decision to develop these guidelines was made after whole-of-industry discussion forums arranged by the OIT to

The ORC, OIT and the many contributing organisations recognise that this document will undergo regular review.

This document will be amended as the Country Fire Authority (CFA) develops more detailed response plans and as land managers and the community gain experience with Fire Danger Ratings and warnings.

Any changes to the document will be made available on www.outdoorsvic.org.au

3 Part One - Planning

Victorian Adventure Activity Standards (AAS) recognise that there are many desired outcomes, participant types and organisational structures involved within the outdoor industry. This planning section is intended to provide accepted measures to plan for foreseeable severe weather events prior to any activities being undertaken.

Each organisation will determine how they can best achieve these guidelines.

3.1 Activity Plans

3.1.1 General

In the development of an activity plan the following severe weather factors should be considered.

Ensure that relevant weather information has been collected and understood. This will include:

Examples of resources include:

If using information sources other than those listed be sure that the information provided is current and reliable.

Communication with parents, guardians, land managers, local police, and other activity providers will normally be part of the planning prior to the activity and should include any issues about severe weather related events.

All leaders must:

3.1.2 Physical environment

Know the landscape of your activity area and how it relates to weather events. For example, is it alpine, semi desert or coastal, sheltered or exposed, lightly treed or heavily timbered?

It is important to know the prevailing conditions of the area you are going into, this will have a large affect on the outcomes of any severe weather event. For example if the region has been in drought for a long period this could affect the bushfire potential or the stability of trees during a strong wind event. If the area has had a wet period this will affect the likelihood of the rivers rising quickly.

3.1.3 Severe Weather Sites

These are locations that the group can move to, if practicable, where they would receive shelter from adverse weather conditions.

This may be as simple as a clearing to protect from tree fall and/or a rocky depression that can shield from the heat of a fire. These sites should be predetermined in the planning process with consideration given to how far the group will be from the sites at any given point and how safely you can move the group to the sites once you have discovered there is a severe weather event.

Know the potential access and egress routes for evacuation if this is required. Are there river crossings, potential road closures and/or alternative routes?

3.1.4 Trigger Points

Develop trigger points and responses.

A ‘trigger point’ is a quantifiable measure of weather conditions such as a wind speed, temperature, etc. Authorities use trigger points to create community alerts such as a total fire ban or a severe wind warning.

Each organisation should also develop their own trigger points that take into consideration those of the authorities but that also consider the context of activity being undertaken.

For an outdoor activity, a trigger point will be a previously identified measure (e.g. level of fire danger, temperature, river level or wind speed) that when reached will cause the leader to consider whether the activity should continue, be modified (e.g. different route) or cease or even whether the group needs to be evacuated.

For example, when a Total Fire Ban is announced for your area, how will you alter your bushwalk? If winds of 50 knots are predicted for a coastal area, how will you change your canoeing activity? If a Fire Danger Rating reaches 'Severe' or 'Extreme' will you call off the canoe trip?

3.1.5 Communication

Where communication systems are available, they must ensure messages can be sent and be confirmed as having been received.

A procedure should be in place in the event that a message is not confirmed as received.

3.1.6 Local authorities

Know the emergency management plan of the location in which the activities are being undertaken. Land managers and emergency management authority decisions override those of any visiting group. If the emergency management authority or the land manager declares an evacuation then the group must be ready to comply.

Leaders should realise that an emergency (such as a fire) may mean that emergency services do not have sufficient resources to respond and they should plan for such an eventuality (e.g. by selecting severe weather sites).

3.1.7 Training

All organisations should endeavour to provide ongoing severe weather training. This will vary according to the activities, environments and clients/participants but should generally include:

4 Part Two – Considerations For Specific Events

4.1 Bushfire

CAUTION

When this document was being prepared, government agencies such as Country Fire Authority (CFA) and Department of Education and Early Childhood Development (DEECD) were still refining detailed responses for fire danger ratings. When preparing an activity plan you should check their websites for the latest information at www.cfa.vic.gov.au and www.education.vic.gov.au respectively.

4.1.1 Fire Danger Index

The Bureau of Meteorology (BOM) issues Fire Weather Warnings when the Fire Danger Index (FDI) is expected to reach or exceed a value of 50 (for Victoria, States vary) either today or the next day. The FDI is used to establish a Fire Danger Rating (FDR).

4.1.2 Total Fire Ban (Victoria)

The Bureau of Meteorology doesn't have the power to declare a Total Fire Ban. This responsibility resides with the CFA however the BOM publicises the declaration. A Total Fire Ban is declared on days when the danger of fires occurring is high, when fire would spread rapidly and be difficult to control. It creates restrictions on the use of open, fires, machinery, etc. The areas covered by fire bans do not align with BOM forecast districts in Victoria.

A Total Fire Ban is declared when the FDI is about 50 - many factors come into play and FDI is just part of it. A total fire ban is normally issued in the afternoon for the following day but may be issued later, if needed.

4.1.3 Fire Danger Rating (FDR)

A Fire Danger Rating is a prediction of fire behaviour, including how hard it would be to put out a fire once it starts. It provides information on:

• the sort of bushfire behaviour that could be experienced on that day

• the type of threat bushfires may pose to life and property on any day given the forecast weather conditions.

Fire Danger Ratings will be a feature of weather forecasts and alert people about the actions to be taken in preparation for and on the day. FDRs will be given on ABC Local Radio and the CFA and DSE websites (www.cfa.vic.gov.au and www.dse.vic.gov.au).

A Fire Danger Rating may not be announced until 5pm in the afternoon for the following day and may be specific for certain regions of Victoria which are shown on the CFA website www.cfa.vic.gov.au

Groups should have a fire plan, prepared prior to undertaking the activity, that will enable thoughtful, considered decisions about trigger points and actions.

The Fire Danger Rating should be the trigger point for action for your activity. The Recommended Actions for Households are provided for comparative purposes.

4.1.4 Trigger point actions

RATING Recommended Action for Households Recommended Action for Outdoor Activities

CODE RED (Catastrophic)

(FDI 100+)

If you live in a bushfire prone area the safest option is to leave the night before, or early in the morning.

Leave the area the night before or early in the morning.

If this is not practical, take immediate action to protect the group.

Practise or remind the group about behaviour in the event of a threat from fire.

EXTREME

(FDI 75-99)

The safest option is to leave early in the day if you live in a bushfire prone area and your Bushfire Survival Plan is to leave. Only stay if your home is well prepared, well constructed and you can actively defend it.

Leave the area the night before or early in the morning.

If this is not practical, take immediate action to protect the group.

Practise or remind the group about behaviour in the event of a threat from fire.

SEVERE

(FDI 50-74)

The safest option is to leave early in the day if you live in a bushfire prone area and your Bushfire Survival Plan is to leave. Only stay if your home is well prepared and you can actively defend it.

If your activity is in a bushfire prone area consider leaving early in the day.

• remind group of the location and route to your severe weather site.

• practise or remind the group about behaviour in the event of a threat from fire.

• reassess the likelihood of meeting the goals of the activity

• re-evaluate route selection and evacuation options

• re-evaluate campsite choices

• ensure procedures are modified to account for the heightened fire risk

VERY HIGH

(FDI 25-49)

If you live in a bushfire prone area and your Bushfire Survival Plan is to leave, the safest option is to leave at the beginning of a day.

If your activity is in a bushfire prone area

• reassess the likelihood of meeting the goals of the activity

• re-evaluate route selection and evacuation options

• re-evaluate campsite choices

• ensure procedures are modified to account for the heightened fire risk e.g. meals that do not require cooking, waste disposal, campsite procedures

• practise or remind the group about behaviour in the event of a threat from fire.

HIGH

(FDI 12-24)

Check your Bushfire Survival Plan.

Review your activity plan including severe weather sites, particularly those for bushfires.

LOW–MODERATE

(FDI 0-11)

Check your Bushfire Survival Plan.

Review your activity plan including severe weather sites.

4.1.5 Radiant heat

Understanding radiant heat - a major killer in bushfires

The radiant heat from a bushfire can kill a human without flames ever touching them. Radiant heat kills very quickly.

The human body cannot absorb large amounts of radiant heat or withstand extremely high temperatures.

Protection from radiant heat

Distance is the best protection

4.1.6 Heat-related illness

4.1.7 Signs of fire are observed

If a group spots smoke in the field:

4.1.8 Imminent threat

On foot

When moving on foot:

Avoid:

If you cannot avoid the fire, protect yourself from radiant heat by

4.1.9 In a vehicle

If threatened by a bushfire while driving:

4.2 Severe Wind

The Bureau of Meteorology issues wind warnings via their website at www.bom.gov.au.

Severe wind can be part of several different warnings.

4.2.1 Severe Thunderstorm Warning

These warnings are provided when thunderstorms are expected to produce dangerous or damaging conditions.

Literally hundreds of thunderstorms occur each year in Victoria. Although all thunderstorms produce lightning, that is a danger itself, not all of them are "severe" or likely to produce damage. The Bureau of Meteorology defines a severe thunderstorm as one that produces:

Most thunderstorms do not reach the level of intensity needed to produce these dangerous phenomena, but they all produce lightning which can cause death, injury and damage.

In Victoria, thunderstorms, including Severe Thunderstorms, are most likely to occur from October through to April. They are localised events and are more common than any other natural hazard.

For the impact of thunderstorms see http://reg.bom.gov.au/info/thunder/

4.2.2 Severe Weather Warning

These warnings are provided when severe weather is expected that is not directly related to severe thunderstorms, tropical cyclones or bushfires. Examples include land gales, squalls, flash flooding, dangerous surf or tides.

4.2.3 Gales

Winds greater than 62 km/h or 34 knots usually last longer and affect much larger areas than thunderstorms.

At this speed on land, twigs break off trees; progress is generally impeded.

At sea there would be moderately high waves of greater length; edges of crests begin to break into spindrift; foam is blown in well-marked streaks along the direction of the wind.

(Part of the Beaufort Wind Scale, which relates visible phenomena to wind speed)

See http://reg.bom.gov.au/lam/glossary/beaufort.shtml

4.2.4 Coastal Waters Wind Warning

Warnings for coastal waters are issued whenever strong winds, gale, storm force or hurricane force winds are expected (i.e. greater than 26 knots or 48 km/h).

See www.bom.gov.au/catalogue/warnings/WarningsInformation_Marine_CWWW.shtml

4.2.5 Action

In severe wind:

4.3 Lightning Strike

The Bureau of Meteorology issues warnings via their website at www.bom.gov.au

For the impact of thunderstorms, including lightning, see http://reg.bom.gov.au/info/thunder/

4.3.1 Severe Thunderstorm Warning

These warnings are provided when thunderstorms are expected to produce dangerous or damaging conditions.

Literally hundreds of thunderstorms occur each year in Victoria. Although all thunderstorms produce lightning, that is a danger itself, not all of them are "severe" or likely to produce damage. The Bureau of Meteorology defines a severe thunderstorm as one that produces:

Most thunderstorms do not reach the level of intensity needed to produce these dangerous phenomena, but they all produce lightning which can cause death, injury and damage.

In Victoria, thunderstorms, including Severe Thunderstorms, are most likely to occur from October through to April. They are localised events and are more common than any other natural hazard.

Standards Australia promotes two processes for minimising the possibility of harm by lightning strikes. These are the 30/30 rule and the 15-second rule.

4.3.2 The 30/30 rule

This means if there is 30 seconds or less from the lightning flash to the thunder, you are in danger and should avoid high and exposed areas. Then wait at least 30 minutes after the last thunder before assuming that it is safe to continue the activity.

4.3.3 The 15 second rule

This means if there is 15 seconds or less from the lightning flash to the thunder, you should get into a ‘lightning position’.

4.3.4 Lightning position

If anyone is struggling to maintain this position, use a rolled up mat, stuffed sleeping bag or bag of clothes to sit on.

If the 30/30 rule or the 15-second rule indicate that you are in possible danger, then:

Do

Don’t

Do not move towards or seek shelter from:

Avoid using communication devices.

4.3.5 In a vehicle

If driving and time permits:

4.4 Floods

4.4.1 Flash flooding

Flash flooding usually results from relatively short, intense bursts of rainfall, commonly from thunderstorms. Flash floods tend to be quite local and it is difficult to provide effective warning because of their rapid onset. Torrents of water can wash people, cars and even buildings away at short notice.

4.4.2 Riverine flooding

Riverine flooding is generally the result of widespread rain, causing water over large areas to collect in streams and rivers, which overflow. These floods generally rise at a slower rate and although quite devastating, do rise at a rate that usually allows for managed escape. Riverine floods are still dangerous as flowing water can still wash people, cars, etc away.

The Bureau of Meteorology issues flood warnings via their website www.bom.gov.au/hydro/flood/vic/

You can zoom to individual river stations.

4.4.3 Action

Groups /leaders should monitor river levels in the field when flood is a foreseeable hazard,

4.5 Extreme Temperature – hot and cold

Note that no authority or agency advises what conditions are considered ‘too hot’ or ‘too cold’.

Consider stopping the activity if:

4.6 Blizzard

The Bureau of Meteorology defines a blizzard as a violent and very cold wind that is laden with snow, some part, at least, of which has been raised from snow covered ground.

If blizzard conditions are forecast for the expected trip

In such conditions

Blizzard and high snow fall days also include poor visibility, extreme cold, very high winds and deep snow with reduced mobility.

5 Definition of terms

Severe weather event

Severe weather is defined as any potentially destructive weather phenomenon.

Trigger point

A ‘trigger point’ is a quantifiable measure of weather condition(s), e.g. wind strength, total fire ban, fire danger rating, rainfall in millimetres or river level.

For an activity, this will be a previously identified measure (e.g. level of fire danger, temperature, wind speed) that will ‘trigger’ a review of the conduct of the activity by the leader.

Severe weather site

A site or sites selected by the leader or organisation, prior to commencement of the activity, which the group may move to if threatened by a severe weather event.

Fire Plan

A well thought out plan about how you will prepare and respond to a fire in your area. A plan should include a set of actions to address the risk and will require you to make a series of decisions about what you will do on a high fire risk day, or should a fire threaten your activity.

Organisation or activity provider

This is a commercial body (for profit) or non-commercial body (not-for-profit / community group) which undertakes to provide an activity.

Leader

This is the person who has the responsibility for the conduct of the actual activity. The leader should have a level of skill appropriate to the conduct of the activity and may be supported by one or more assistant leaders.

Assistant leader

This person will be delegated tasks by the leader and will have a level of skill appropriate to those tasks.

Participants

A person whose welfare is the responsibility of leader or assistant leader and/or who participates in an activity for recreational or educational purposes but not in a leadership role.

6 Further information

All weather information and warnings may be found at the Australian Government Bureau of Meteorology www.bom.gov.au

Fire information and warnings may be found at the Country Fire Authority www.cfa.vic.gov.au

Land managers such as Parks Victoria (www.parkweb.vic.gov.au) and the Department of Sustainability and Environment (www.dse.vic.gov.au) will also have relevant information, advice and warnings.

The Outdoor Recreation Centre Victoria Inc would like to extend sincere thanks to the members of the working party who invested their own time and expertise to represent the various industry sectors in developing this document.

 

Download AAS Resouces

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Management of Outdoor Activities for Severe Weather Conditions Outdoor Recreation Centre November 2009 application/pdf 11 pages 86 kB
Draft AAS Forum Report - February 2005 Outdoor Recreation Centre February 2005 application/pdf 16 pages 142 kB
AAS Incident Reporting Outdoor Recreation Centre January 2003 application/msword 5 pages 53 kB
AAS Food and Sustainability Quality Food Management Systems January 2003 application/pdf 3 pages 21 kB