Discussion Paper:
Operational
Capability Strategy
February 2017
Chief Officer Operations Foreword
The Victoria State Emergency Service (VICSES) has served communities
in the State of Victoria with distinction for the last forty years. We
have continued to evolve our service to meet the changing needs of
communities and the emergency management sector, and we are a key
and integral part of the State’s multi agency response to emergencies.
VICSES is aligned and committed to the principles of ‘all communities, all
emergencies’ and viewing our control agency responsibilities through
the interrelated lenses of ‘before, during and after’ emergencies, to
ensure we best utilise our capabilities for improved outcomes for
communities.
The emergency management ethos of ‘we work as one’ is more than
just agencies working more collaboratively during events and aligned
to agreed principles and objectives. It compels us to consider how we
build a holistic capability to meet community needs across the State and
best utilise the investment we make in resources across communities,
agencies and business; in a tangible spirit of partnership.
The sector is well served by a range of national and state level strategic
roadmaps that guide us in the development of our capability. VICSES
is also well advanced in the development of our own framework of
strategic direction that links the various delivery and enabling elements
of the service to effectively steer our combined service delivery. What
is missing is an Operational Capability Strategy that captures the
specific elements of our operational capability and provides us with a
bearing and pathway for development and utilisation of our operational
capability into the future.
We have commenced the journey of developing an Operational
Capability Strategy by developing this Discussion Paper. The Discussion
Paper is not a draft strategy. It is designed to promote thinking and
discussion around our operational capability and allow our members to
contribute to the collective building of the strategy.
The essence of our capability lies with the members that make up
VICSES. We all have a stake in the success of our service delivery
to Victorian communities and we can be proud of our collective
contribution and embrace the opportunity to continue to develop
VICSES. I strongly encourage your participation in the strategy
development journey as another important component to building
VICSES as an emergency management organisation for the future.
Trevor White AFSM
Chief Officer Operations
Discussion Paper - Operational Capability Strategy
Purpose
The Chief Officer Operations has commissioned the development of an Operational Capability
Strategy (OCS) to guide the future development of VICSES operational capability.
The essence of VICSES capability lies with our members and accordingly the Chief Officer
Operations is keen for all members to have the opportunity to build the OCS through a process of
challenging thinking, testing assumptions and ground truthing potential pathways. This will give
us the best possible chance of ensuring the development of an OCS that is driven by validated
operational need and aligns to our existing organisational and sector strategic framework.
This is not a draft OCS. This is a discussion paper. Its purpose is to promote consideration and
discussion in relation to the development of an OCS. It is but one step in a coordinated journey of
strategy development.
The Chief Officer Operations intent is that an OCS will be released before the end of the 2016/17
financial year.
3
Discussion Paper - Operational Capability Strategy
Background
VICSES currently benefits from a suite of strategies that support the VICSES Corporate Plan 2015-2018. The Service
Delivery Strategy 2025 is a primary organisational driver for a future service delivery model for VICSES. The
Community Resilience Strategy 2016-2018 was released in late July 2016 and will guide our development and
delivery of community resilience services. The Volunteer Strategy, Assets Strategy, ICT Strategy and Our People
Strategy are all enabling strategies to support the fundamental front end ‘service delivery’ strategies relating to
response and community resilience.
What is missing is an OCS that encapsulates the elements of our operational capability and provides a bearing and
pathway for development and utilisation of our operational capability into the future. This strategy will have direct
synergy with the Service Delivery Strategy and strong linkage to the Community Resilience Strategy. It will inform
and provide the ‘needs’ direction for the remaining enabling strategies.
The key objective in the Service Delivery Strategy around front line service delivery capability and capacity is:
Continue to build our capacity and capability to respond to emergencies in an effective, timely, flexible,
adaptive, responsive and sustainable way.
VICSES Service Delivery Strategy 2025
OBJECTIVES
KEY ACTIVITIES
OUTCOMES
FRONT LINE SERVICE DELIVERY
1.1 Review volunteer and staff competencies to ensure VICSES has the capacity and capability to respond to emergencies effectively and efficiently.
Capability & Capacity
1.2 Review support service activities against legislated requirements addressing function creep and expectations on capacity and capability.
Continue to build our capacity and
capability to respond to emergencies in
an effective, timely, flexible, adaptive,
responsive and sustainable way
1.3 Undertake modelling and analysis to address capacity requirements aligned with service delivery.
More timely, responsive, flexible and
effective, risk and evidence based
service delivery, leading to better
public safety outcomes
1.4 Provide support to the initiatives of the Our People strategy focused on effective service delivery; recruitment, retention and development of volunteers.
2.1 Deliver clear messages to inform community expectation on service delivery and work with sector to develop clear messages across all hazards.
Disaster Resilient Communities
Communities who better understand their
risks and take appropriate collective action
before, during and after emergencies
2.2 Provide timely and relevant information before, during and after an event to empower people to make better and more informed decisions and encourage understanding and acceptance of shared responsibility and consequence management.
2.3 Collaborate with relevant partners – specifically other emergency service agencies and local government to enhance our leadership and contribution to community based emergency management and planning that is risk and evidence based.
2.4 Build robust community partnerships and work with them in building stronger connectivity in emergency management and planning to support effective prevention (mitigation) and preparedness for emergency events.
Confident, safer and more informed
communities
This objective is the primary directional bearing in the development of an OCS.
Amongst other things, an OCS will sharpen our ability to meet Key Action 3.4 of Strategic Theme ‘Government
Support’ within the VICSES Corporate Plan 2015 – 2018:
“Develop appropriate business cases for investment in VICSES capability and establish appropriate advocacy
programs.”
There are two ways we can approach the discussion and consideration around our capability. Ideally, we may want
to adopt a revolutionary approach that promotes a ‘greenfields’ discussion that builds an ideal service from the
ground up and then re-construct our service accordingly or adopt an evolutionary approach which accepts the
service model that exists and continue to evolve and modify our service towards a rationalised ideal model.
4
Discussion Paper - Operational Capability Strategy
Considerations and Issues impacting on VICSES Operational Capability
The considerations and issues detailed below arise from an initial scoping with various VICSES members and
external stakeholders. They are not the sum of all considerations and issues impacting our capability and it is
expected they will be refined and evolve during the strategy development journey.
Definitions
In developing an OCS we require an agreed understanding of key elements and definitions used throughout this
paper to provide parameters and context around them:
Operations
In a traditional sense, Operations in VICSES and emergency services has focussed on the response element of
service delivery – rescue personnel attending incidents and the associated structure, command and control
arrangements supporting that response element.
A contemporary approach to Operations across the sector recognises the broader elements of our service delivery
through what is termed ‘before, during and after’ events or also known as ‘prevention, preparedness, response and
recovery’ continuum.
The sector and our service continues to properly challenge and evolve our thinking around the application of
Operations in our service to communities and we are encouraged as members to adopt a more holistic view of
the traditional term and indeed consider a terminology that better reflects a modern emergency management
organisation.
In the first instance, we may be better served by appreciating that as a deliverer of emergency management
functions we have two distinct, yet interdependent elements to our service delivery. Firstly, a direct community
facing element that delivers services in building community resilience and responding to incidents, and secondly,
an enabling or support element that provides a foundation for the successful delivery of ‘front end’ services. Each
element is as vital as the other and when operating in synergy ensures the service meets our obligations.
For the purpose of this Discussion Paper and the development of an OCS we will utilise the term Operations to
mean the response related community interventions and associated command and control capability needed to
discharge our organisational duties.
Our Service Delivery Strategy and Community Resilience Strategy assist in providing linkages to the other
interconnected elements of capability beyond Operations.
Capability
The Victorian Emergency Management Capability Blueprint 2015 – 2025 defines capability as:
Our collective ability to reduce the likelihood and consequences of an emergency before, during and after.
Capacity
The Victorian Emergency Management Capability Blueprint 2015 – 2025 defines capacity as:
The extent to which the core elements of capability can be sustained before, during and after an emergency.
Whilst there is benefit in aligning our common use of definitions within the sector to ensure consistency of
application, in the context of this Discussion Paper and the OCS we need to apply the definitions through the lens
of how we define Operations.
5
Discussion Paper - Operational Capability Strategy
Alignment with Existing Strategic Framework
The VICSES OCS will need to ensure it is aligned to the current Victorian emergency management ethos around
‘all communites, all emergencies’ and ‘we work as one’ as outlined by the Emergency Management Commissioner.
Indeed, Section 4A(a) of the Victoria State Emergency Service Act 2005 provides that an objective of the Authority
is to, “contribute to a whole of sector approach to emergency management” With that in mind, VICSES needs
to develop an OCS that avoids creating or perpetuating a unique agency specific capability in isolation to the
broader State multi agency capability. VICSES is part of an interoperable system of emergency management
provision, with a focus on service delivery ‘before, during and after’ emergencies. The OCS also needs to be
mindful of, and not inconsistent with, the EMV Victorian Preparedness Goal and the AFAC sponsored National
Capability Roadmap.
The OCS also needs to reflect its role as an aligned strategy with the Community Resilience Strategy and draw its
direction from the organisational Service Delivery Strategy. These strategies will hopefully test existing thinking
around the investment in operational capability within VICSES and contribute to steering investment discussion
and prioritisation, focussed on outward service delivery and the relative return on investment of various business
decision choices - avoiding operational investment considerations made in isolation.
Questions:
„„ What does VICSES operational capability look like in
2025?
SERVICE
DELIVERY
STRATEGY
„„ How should we apply the ‘we work as one’ ethos
within VICSES to support joined up agency response
to emergencies? What does it mean to our capability
and our members?
„„ How do we balance investment in equally vital areas
COMMUNITY
RESILIENCE
STRATEGY
of service delivery such as community resilience
building whilst maintaining and developing an
effective preparedness and response capability?
OPERATIONAL
CAPABILITY
STRATEGY
„„ How do we develop an effective capability and avoid
being ‘all things to all people’?
„„ How do we balance organisational capability intent
with sector expectations eg. road rescue provision?
Community as Our Focus
The OCS will need to be developed in consultation with broader stakeholders, including communities. Whilst the
Service Delivery Strategy is the primary interface strategy with the community at large in shaping VICSES service
delivery, we need to consider “are we delivering operational services in line with community expectations?” We
need to challenge our thinking and remind ourselves we are a ‘means to an end and not an end in itself.’
The new EMV approach of ‘all communities, all emergencies’ is further enhancing the community centric approach
we have come to work under, with the community being centre of all decisions with a focus on people and
broadening the approach to all emergencies. This is a logical and simple change in the way we approach
emergency management. Victorians need to see the community is our absolute focus. It’s the right thing to focus
on, and as part of it they need to understand it1. The OCS will need to consider its touchpoint with the community
in this regard.
Questions:
„„ How do we seek community input to the development of our operational capability?
„„ How do we test and validate our operational capability and service delivery with key stakeholders including:
local government, other agencies and community groups?
„„ How do Units, Regions and State best test our operational effectiveness with the communities we serve?
1
Emergency Management Victoria Website, posted 24 June 2016 and sourced 29 July 2016
6
Discussion Paper - Operational Capability Strategy
The role of the Volunteer and Staff
VICSES is fundamentally a volunteer based emergency service organisation and any OCS needs to consider the
capability of our volunteer members and ensure a focus remains on developing the volunteer experience and
career and their input into the development of service capability. Amongst other things, this will include a strong
direction in exploring the opportunity for greater volunteer involvement in incident management teams.
VICSES needs to consider our capability within the context of our volunteers either contributing to a service
already designed around them or evolving the service to allow a greater level of self determination and creating a
service that ‘fits around’ our volunteers rather than the converse. The work in the Role & Training Pathways project
will link strongly to the consideration of this aspect of capability building.
We have a unique workforce and VICSES should leverage off that whilst ensuring we avoid a capability pressure
that could become self defeating to our service viability – we need to remain reflective and alive to the challenges
that a volunteer workforce presents in an environment of guaranteed service expectation.
The OCS will also be informed by the work commencing under the auspice of the Director Human Resources
around staff capability and exploration of their primary core role balanced with a secondary role in operations or
community resilience. This work will hopefully reinforce the nature of VICSES as an emergency service employer,
with all staff having a role to play before, during and after emergencies in supporting service delivery.
Questions:
„„ What is the best way to develop a volunteer career path for members that respects, retains and fully utilises
our members’ personal investment in VICSES?
„„ How do we balance volunteer career and service expectations with capability development that may
be driven by potentially competing expections such as legislation and evolving community, sector and
government demands?
„„ What is the best way to link staff who serve in the enabling element of VICSES to the front line service
delivery element of VICSES to enhance capability; whilst maintaining other essential business activities.
Capability Tools
VICSES currently has access to a range of operational capability tools that that assist us in determining investment
choices. Our Organisational Capability & Information Framework (OCIF) is a suite of applications & reports used
by VICSES to support Business Intelligence. An aspect of OCIF is that each tool is managed separately to the other
with various internal business unit owners responsible for data collection and evaluation.
The Emergency Response Activity Standards (ERAS) is the broadest tool and serves well to guide capability
decisions based on risk profile, service delivery demand and relative Unit capability. The tool is undergoing
constant enhancement. It provides us a measure of operational capability at any given point and informs Unit,
Regional and State decision making.
It is nonetheless only one tool and should not be treated as a rigid and sole indicator of overall capability needs
as it does not provide a strategic assessment of needs based on a range of internal and external factors and is
primarily focussed on driving a single element of VICSES service delivery. Whilst arguably not intended, it is also
inherently predisposed to grow our investment in operational capability when investment decision factors may
suggest otherwise.
The implementation of an OCS would benefit from a fully integrated VICSES business intelligence model that can
provide independent, whole of service framed data to contribute to improved investment decision making. A
well developed business intelligence model would link inputs to outputs and ultimately provide a tangible link to
capability investment and community outcomes as a more robust and effective measure of investment success.
7
Discussion Paper - Operational Capability Strategy
Workload and activity information Performance information
Inputs
Process
Outputs
Outcomes
Direct measures Indicators
It is essential that VICSES is able to analyse our data to properly determine the level of real capacity we have to
undertake our functions. We currently estimate our volunteer capacity on the basis of four trained and equipped
members being required to meet a single member 24/7 availability (1:4 ratio). However various VICSES data
sources and analysis of tested readiness levels and response to incidents suggest real volunteer core capacity need
may be somewhere between 1:4 – 1:10. This impacts our decisions around maintaining a capability.
Questions:
„„ What tools (internal and external) should we call upon to gauge and validate our capability development?
„„ How useful are the existing tools in supporting Unit, Regional and State level capability development?
„„ How can we better test data assumptions to ensure more effective capability implementation in the field ie.
how do we apply rigour around our ERAS assumptions?
„„ How do we measure the effectiveness of our capability investment against community safety outcomes?
Where do we see better investment return – eg. a mix across prevention and response?
„„ What is the true level of capacity required to drive operational capability investment?
realistic? eg. do we require 1:4 or up to 1:10 volunteer ratio to meet service demand?
„„ How do we maintain but not over invest in our surge capacity?
8
Are our measures
Discussion Paper - Operational Capability Strategy
State Capability – Joined Up Service Delivery
We need to be able to demonstrate we have adopted an internally tested approach to developing service needs
against a whole of state emergency management (EM) need. For example, what is the driver for retention of a
range of traditional operational service capabilities when balanced against a ‘joined up’ EM sector such as: road
accident rescue, urban search and rescue and specialist response (including swift water rescue)?
Indeed, a mature and objective review of needs may actually lead to redirected investment and growth in new or
innovative service capability areas not currently considered.
This commences with the examination and development of fundamental principles around the WHY we deliver
operational services in VICSES – these principles are intrinsically linked to the Service Delivery Strategy and will
lead to developing the WHAT we need to deliver our services. Ultimately, we can then determine the HOW we
deliver services. A failure of VICSES to imagine, challenge and innovate during these developmental elements may
inhibit our ability to evolve.
In simple terms, VICSES will need to agree on either continuing to support our determined capability to deliver our
services, clarify the limitations around our service delivery or extract ourselves from the delivery of any particular
element of our services.
Questions:
„„ What current services should we test against a ‘whole of sector’ approach?
„„ In which areas could we evolve our service delivery and why?
„„ Does “continue to build our capacity and capability” necessarily mean growth, or can build also mean redesigning and sharpening our capacity and capability with efficiency and efficacy in mind?
„„ Whilst we as an agency may lead the response to an event, do we have to own or manage and maintain the
resource that delivers the response eg. third party provision such as Lifesaving Victoria Inflatable Rescue
Boats?
„„ How do we ensure the operational capability of VICSES respects the personal investment made by our
members, whilst being steered towards effective service delivery in a ‘joined up’ environment?
State Core Capabilities & Doing the Work of Others
EMV had led the development of a range of State core capabilities that will drive the development of multi agency
capability to deal with a range of emergencies that could impact Victoria. This work supports the concepts of ‘all
communites, all emergencies’ and ‘we work as one’. The OCS needs to be mindful of these core capabilities and
ensure that, in collaboration with other Emergency Service Organisations (ESO’s) and stakeholders, we develop a
‘joined up’ capability.
VICSES also need to be mindful of avoiding simply filling the service delivery gap created due to a service not
being provided by another agency, and whether a service enhancement is actually an unconscious pathway to
assuming the cost burden for a service that could be provided by another agency.
Questions:
„„ How do we best develop an agile operational capability focussed on the ability to evolve effectively to
changing operational needs?
„„ What are the current areas of service delivery that may simply fill a responsibility void of another agency?
What is the net benefit and efficiency to VICSES in continuing this service delivery?
„„ From a ‘whole of state’ and ‘joined up agencies’ capability perspective, where can a future VICSES
best provide
an essential element to this service delivery? How do we avoid duplication and best develop VICSES to
deliver within our contribution? Where do we best fit in with other agencies?
9
Discussion Paper - Operational Capability Strategy
Statewide Consistency v Local Flexibility
A continual challenge for VICSES will be in finding the balance
between statewide consistency versus local flexibility and
creating an environment of local solutions for local problems.
This is evidenced more so in the area of capability development
and the associated assets and equipment that are provided
in creating and maintaining capability. VICSES Units have
evolved over time as ‘grassroots’ bodies and each Unit operates
in its own unique circumstances, reflective of community
involvement, ownership and development over the years.
However we exist in a reality of a statutory authorising environment that creates VICSES, within a joined up sector
and the need to meet a range of regulatory requirements consistently across the state.
The service experiences this ‘challenge’ in respect to our assets and equipment considerations on a constant basis
and the perceived stifling of innovation in preference for consistency is a very real hindrance to decision making.
Whilst the language may appear negative we should remember that consistency has brought this service many
enhancements around: work health & safety, economies of scale, interoperability and efficiency of service
delivery. These very tangible benefits are not readily identified by all members but are essential drivers in seeking
consistency.
However, the service could adopt an approach that sees the development of statewide consistent policy and
standards with the opportunity for adopting flexible local approaches in meeting these policy intents and
outcomes. This requires a significant cultural shift from a prescriptive to a more enabling environment. One
example that has been referred to is to adopt the post office ‘franchise’ model to service delivery – this model sees
standard branding and processes around the delivery of the core functions of a postal service, with the ability of
the individual business or service point to ‘value add’ and enhance their suite of retail products and delivery.
This aspect is a vital factor in developing an OCS ‘organically’ and allowing the development and implementation
to percolate from the field upwards.
As a result of existing funding models there is a huge diversity among Units in terms of current funding and
support received in kind, including use of land, facilities and resources and a disparity in terms of relative Unit
financial capability.
Questions:
„„ How do we balance the need for consistency with the desire for local innovation?
„„ How do we maintain a ‘STATE’ Emergency Service and avoid a multitude of inconsistent service models at local
level yet recognise differing community needs and abilities?
„„ How do we facilitate innovation to percolate from the field and influence consistent capability development
at organisational level? Can we promote a concept of ‘innovation hubs’ to influence and inform capability
development?
„„ How do we effectively harmonise top driven capability development with ground level capability needs?
„„ How do we achieve minimum core functions across all Units whilst appreciating not all Units can deliver the
same capabilities?
10
Discussion Paper - Operational Capability Strategy
Funding
Without an OCS, it is difficult for VICSES to move from an annual budget focus to a more long term strategic
financial model around operational capability investment. An OCS should contribute to development of a more
longer term financial horizon around investment decisions, focussed on a 3 – 10 year forward projection.
In the context of a synergised State EM sector and the constant need to rationalise POISTED12 input investment
into services, VICSES needs to redefine our operational requirements and ensure we can justify ‘public purse’
expenditure in our capability.
In determining our capability investment needs we must consider the relative benefits and diminishing returns
on potential over investment in response oriented assets. Simply put, we need to consider whether investment
in more trucks and equipment is the answer if the LHQ’s are in disrepair, or we have not invested properly in
community resilience building, training and health and safety.
We need to also consider our capability investment decisions having regard to a ‘capability lifecycle’. This
addresses the issue of whether we need to sustain, conclude or evolve a capability prior to the investment decision
being made. This ensures prudent investment decision making that has regard for full costing and funding
implications and clarifies stakeholder expectations from the outset.
The OCS also needs to be mindful of the existing funding arrangements for VICSES which is based on a mix of
sources which do not provide consistency.
Questions:
„„ How do we balance operational capability investment to ensure development matches maintenance and
replacement?
„„ How do we balance a long term strategic development approach with unforseen service demands that arise,
or are imposed, as a result of Inquiries and government policy and service changes eg. introduction of Land
Based Swift Water Rescue (LBSWR)?
„„ How do we ensure the ‘best bang for buck’ is achieved in operational capability development?
„„ How do we create a ‘capability lifecycle’ that addresses sustainability v conclusion v evolution of specific
capability to ensure VICSES operational capability remains meaningful in a changing environment?
2
Personnel, Organisation, Information, Support, Training, Equipment, Doctrine
11
Discussion Paper - Operational Capability Strategy
A Continuing Range of Factors
VICSES through the OCS and the Service Delivery Strategy need to consider a range of other factors that drive our operational
capability including, but not limited to:
„„ Expansion versus consolidation of our capability in an environment of fiscal reality
„„ Creating an agile, non specific capability across the State or creating ‘strategic cells of capability’
„„ An increase in the incidence and severity of campaign emergency events such as floods, storms and bushfires and the
amalgamation of traditional ‘seasons’ around flood, storm and fire.
„„ The impacts of continuous improvement and evolution driven within and outside of the service
„„ Being all things to all people versus creating a strategic capability
„„ What is the fundamental purpose of VICSES – not based on the past but where we should be in 10, 20, 30 or 40 years
time
„„ The impact and evolutionary response to population growth and decline in communities – when do we deliver and
when do we not. How does delivery change?
„„ Funding models.
„„ Effective, integrated business intelligence will allow us to continually scan the environment for threats, opportunities
and evolving challenges to inform our capability decision making.
Next Steps
This discussion paper merely commences the journey in raising some of the issues VICSES faces and what needs to be taken
into account in the development of an OCS.
It highlights the need for an OCS to be developed to provide another key piece in the VICSES strategic framework.
The OCS will identify outcome based objectives to guide the development of a future action plan and influence organisational
investment decision making around operational capability. It will provide a roadmap for action as opposed to a detailed
action based document. This future body of work will naturally emenate from an OCS.
If the OCS is to be a significant and credible driver for operational capability development in the future it needs buy in from
the members that make VICSES the success we are.
This discussion paper and your active consideration and feedback to some of the assumptions and hypotheses is vital to
guiding the continued journey in the development of the OCS.
Your feedback to this Discussion Paper can be sent to: [email protected]
We look forward to your feedback and continued consultation as we follow this up with undertaking a round of regional
consultation direct with members to further capture views.
Once feedback is consolidated and further analysis undertaken, a draft strategy will be developed and distributed to members
and stakeholder agencies for further feedback before the Chief Officer Operations submits a final strategy for the support of
the Executive Management Team. It will then ultimately be presented to the Board for endorsement and released as a final
strategy.
David Baker
Deputy Chief Officer – Operations Capability
February 2017
12