This was a very long question regarding the new speed limit in Victoria and its application to St John Ambulance and Non-Emergency Patient Transport (NEPT) vehicles should they stop and provide assistance at an emergency.   I have edited the original question but hopefully convey the meaning.  My correspondent wrote to VicRoads asking them to list NEPT Vehicles and St John Ambulance vehicles as emergency vehicles.  They say:

I received this response from Vicroads;

‘For the rule to apply, the vehicle must be classified as an emergency vehicle and displaying flashing lights. St John Ambulance Victoria vehicles are not currently emergency vehicles for the purposes of the Victorian road rules (e.g. they do not have carte blanche exemption to the road rules as other emergency vehicles do). The definition of an emergency vehicle can be found in the dictionary of the road rules.’

This means that technically the rule would not apply to St John Ambulance Victoria vehicles…  Given the majority of drivers do the right thing by slowing down when passing any flashing lights by the roadside, it is very likely they will also slow down in the unlikely event drivers pass a stationary St John Ambulance Victoria vehicle with flashing red lights.

My correspondent goes on:

Which would correlate with a previous post from you, in that St John Ambulance doesn’t provide ambulance services. However, St John does have an obligation to stop and render assistance at Car accidents and other emergencies if flagged down, likewise NEPT providers hold the same obligations. St John also provides emergency assistance under the State Health Emergency Response Plan (SHERP) which is also documented in the Emergency Management Manual Victoria (EMMV).

By looking up the Victorian road rules legislation dictionary it can be seen that an emergency vehicle is defined as:

(a) a vehicle operated by or on behalf of and under the control of

(i) an ambulance service created under section 23 of the Ambulance Services Act 1986 or listed in Schedule 1 to that Act; or

(ii) an ambulance service created under a law in force in another State or in a Territory of the Commonwealth;

(b) a vehicle operated as an ambulance by the Australian Defence Force …

… St John other than by reference to being allowed to use the word ‘Ambulance’ is clearly not defined as an ambulance service. However in that Act I couldn’t find any reference to NEPT vehicles as they would be defined under the Non-Emergency Patient Transport Act 2003. Based on this information NEPT vehicles would also not be covered as an emergency vehicle. Which means that the new 40Km/h regulation wouldn’t apply to those vehicles either if they were using their warning devices while stopped at an accident or other incident on the roadside.

However under the road rules definitions there is also the definition of an emergency worker;

(a) the driver of, or passenger in, an emergency vehicle being operated or used in connection with the performance by that person of emergency services in the course of duty (paid or voluntary), whether in relation to a fire or a medical or other emergency; or

(b) a pedestrian performing emergency services in the course of duty (paid or voluntary), whether in relation to a fire or a medical or other emergency;

Looking at this information, could it be determined that a St John volunteer (or employee) or a NEPT employee that is stopped at the scene of an accident or other incident on the roadside and is providing assistance, is then considered an emergency worker as they are performing emergency services in the course of duty in relation to a medical or other emergency? Would this then mean in the references to emergency workers under rule 79A(2) & 79A(4) that even though the vehicle a St John Volunteer or NEPT employee is driving isn’t an emergency vehicle, the person is an emergency worker and the 40Km/h rule would apply in the vicinity of that worker so long as another service such as Vic Pol or other service arrives on scene?

If NEPT/St John staff are emergency workers under certain situations, could a NEPT or St John vehicle become an ambulance or other emergency vehicle if working under contract or under the direction of Ambulance Victoria or another emergency service such as Victoria Police, SES or Emergency Management Victoria?

Examples of instances where working under contract to another agency would come to effect would be on days of disaster such as the Thunderstorm Asthma event when NEPT services where responding to Code 1 calls, or if St John or NEPT stops at a car accident they are in effect rendering emergency ambulance assistance as per agreements with Ambulance Victoria and the Department of Health. Other instances where this would occur is during a SHERP activation where NEPT or St John could be sent to various emergencies.

Granted most members of the public wouldn’t differentiate between a NEPT/St John vehicle or an emergency ambulance, especially at a distance when driving along a road, so it would be more than expected that another motorist would slow down to 40Km/h regardless of the vehicle as it would be displaying red or blue flashing lights. However if the outcome of my previous question results in proving a vehicle isn’t able to receive temporary emergency vehicle status under another service, what would be the benefit to fitting red and/or blue lights with or without a siren to vehicles if they are not granted any exemptions or protections in Victoria?

Could it be argued that the definition of an emergency vehicle in Victoria needs to change in order to provide exemptions/protections to such services if they are being granted permissions to have red/blue beacons fitted with or without sirens?

That’s all a bit complex so I’ll work through it step by step.  First there is the new rule – see New speed limit when passing emergency vehicles in Victoria (June 20, 2017).  The rule applies to a driver approaching a stationary or slow moving ‘emergency vehicle’ that is displaying a flashing red, blue or magenta light or sounding an ‘alarm’ (Road Safety Road Rules 2017 (Vic) r 79A).  My correspondent has given the relevant definition of an ‘emergency vehicle’ and it does not include a vehicle operated by St John Ambulance Australia (Victoria) nor a vehicle operated by an NEPT operator licenced under the Non-Emergency Patient Transport Act 2003 (Vic).   So my correspondent is correct, the rules that relate to a new speed limit when approaching an emergency vehicle do not apply where the vehicle is operated by St John Ambulance Australia (Victoria) or a licensed NEPT provider.

There is also an obligation to give way to emergency workers on foot. Rule 79A(2) says:

A driver approaching a stationary or slow-moving police vehicle, emergency vehicle, enforcement vehicle or escort vehicle that is displaying a flashing blue, red or magenta light (whether or not it is also displaying other lights) or sounding an alarm must give way to any police officer, emergency worker, enforcement vehicle worker or escort vehicle worker on foot in the immediate vicinity of the vehicle.

As my correspondent has noted, an emergency worker is

(a)             the driver of, or passenger in, an emergency vehicle being operated or used in connection with the performance by that person of emergency services in the course of duty (paid or voluntary), whether in relation to a fire or a medical or other emergency; or

(b)            a pedestrian performing emergency services in the course of duty (paid or voluntary), whether in relation to a fire or a medical or other emergency;

To the extent that the St John member or NEPT provider is in a vehicle operated by their service, they are not ‘the driver of, or passenger in, an emergency vehicle’ (emphasis added) so paragraph (a) doesn’t apply to them.

To the extent that they are out of their vehicle and providing assistance then paragraph (b) may apply.  The question might be whether they are acting ‘in the course of duty’ but let us assume for the sake of the argument that they are.  If that is the case then rule 79A(2) would require other drivers to give way to the St John member/NEPT employee at the scene of the accident and in the vicinity of an emergency or police vehicle with its lights activated. In short, if there’s an accident and ambulance, police, fire or other emergency service are in attendance with their red/blue lights on, a driver has to slow down and give way to, ie not run over, those helping at the accident even if those people are not members of the fire, ambulance, police or emergency services.  Nothing surprising there.

My correspondent put it this way:

Would this then mean in the references to emergency workers under rule 79A(2) & 79A(4) that even though the vehicle a St John Volunteer or NEPT employee is driving isn’t an emergency vehicle, the person is an emergency worker and the 40Km/h rule would apply in the vicinity of that worker so long as another service such as Vic Pol or other service arrives on scene?

I think that’s right.  The 40km/h rule applies when the police, Victoria Ambulance, Fire or SES have their warning lights activated.  Rules 79A(2) and 79A(4) don’t refer to the 40km/h rule but say that the driver must give way to those working at the accident and must not speed up unless it is safe to do so.

My correspondent then asks:

If NEPT/St John staff are emergency workers under certain situations, could a NEPT or St John vehicle become an ambulance or other emergency vehicle if working under contract or under the direction of Ambulance Victoria or another emergency service such as Victoria Police, SES or Emergency Management Victoria?

I do not think  the use of the words ‘a vehicle operated by or on behalf of and under the control of’ the various services in the Victorian road rules does not require that the vehicle is ‘owned’ by the service, eg the CFA or SES may want to charter a bus as part of their emergency response.  That bus may be operated ‘on behalf of and under the control of’ that service.  It’s arguable that could apply in the right circumstances.  To the extent that St John or an NEPT provider have an agreement to provide supplementary services to the state health department or ambulance service, then to the extent that they are fulfilling that agreement the vehicle is still being operated by St John or the NEPT provider and is under their control.  If however the providers simply delivered their vehicles to Ambulance Victoria and allowed them to use them to supplement the fleet, whether that included retaining St John or NEPT members as part of their crew, then the vehicle may then be operated ‘by or on behalf of and under the control of’ Ambulance Victoria.  It really would depend on the particular circumstances.

I would add that I can’t see that where a ‘St John or NEPT stops at a car accident they are in effect rendering emergency ambulance assistance as per agreements with Ambulance Victoria and the Department of Health.’  I would want to see what sort of agreement says that will happen and that they are not stopping just because it’s the right thing to do.  As for ‘the Thunderstorm Asthma event when NEPT services where responding to Code 1 calls’ even then the vehicle is still being operated by the NEPT provider and is under their control, even if they are responding to tasks allocated to them by Ambulance Victoria.

As for the benefit of fitting red/blue lights and/or siren but given no exemption under the road rules (eg r 306) that’s a good question and one I don’t have an answer to.

Could it be argued that the definition of an emergency vehicle in Victoria needs to change in order to provide exemptions/protections to such services if they are being granted permissions to have red/blue beacons fitted with or without sirens?

It not only ‘could be argued’ but it is clearly true.  If St John Ambulance or NEPT providers are to gain an exemption under r 306 or to be included in rule 79A then yes the definition of ‘emergency vehicle’ would need to be changed.  Whether it should be changed is quite another question.

Conclusion

My correspondent moved from the new speed limit rule to the question of exemptions.  What I would conclude from the long question and answer is:

  1. St John Ambulance and NEPT providers in Victoria do not operate an ‘emergency vehicle’ and so the 40km/h rule does not apply to vehicles passing them. I would add that I think that is probably irrelevant. Assuming they do have red or red/blue warning lights (an issue I haven’t addressed here) no other driver is going to know whether or not a St John Ambulance or NEPT vehicle is or is not an emergency vehicle so it won’t make any difference to their behaviour. They’ll either slow down or they want.
  2. If there is an emergency vehicle also on site, then drivers are required to slow down and give way to emergency workers on foot and that could include St John and NEPT providers. Equally it’s probably irrelevant.  Most drivers are going to give way and if they’re not it’s not going to be because of some finer point on whether or not the people are emergency workers.
  3. Providing an emergency medical service in cooperation with or even at the request of ambulance Victoria would not mean a St John or NEPT vehicle was being operated ‘operated by or on behalf of and under the control of’ Ambulance Victoria (or the other emergency services). More would be required.
  4. I don’t know what the value of fitting red/blue warning lights and/or sirens to vehicles that are not emergency vehicles for the purposes of the road rules is.
  5. To include St John or NEPT vehicles in the definition of an ‘emergency vehicle’ would require an amendment to the regulations. Whether that amendment should be made is a question I make no comment on.