Shocking abuse by a lifelong sex offender was facilitated by monumental indifference and ineptitude at the Puffing Billy railway, a Victorian inquiry has found.

Ombudsman Deborah Glass on Monday handed down her report into three decades of abuse perpetrated by paedophile Robert Whitehead.

She found management at the iconic Dandenong Ranges tourist attraction and other Victorian rail groups protected the organisation at the expense of vulnerable children.

The Victorian government has committed to personally and publicly apologising to his victims.

“We do not know, and we will never know, how many children Whitehead abused,” Ms Glass said in her report.

Whitehead died in prison in 2015 after being convicted of 24 counts of child sex offences – including sexual penetration, indecent assault and false imprisonment against six boys – dating back to the 1960s.

He had previously been convicted of two child sex offences and one child abduction offence in 1959.

He was re-employed by Victorian Railways within 10 days of his release.

Whitehead began volunteering at Puffing Billy in 1961 and used his position to groom children for three decades until he left in 1991.

A core question of his victims was: how did he get away with his offending for so long?” Ms Glass said.

All members of the Emerald Tourist Railway Board and the Puffing Billy CEO have resigned. Photo: Getty

The investigation found members of the Puffing Billy board were aware of allegations but never reported claims to police, considered whether it was appropriate that he remain in the organisation, or put in place any mechanisms to monitor his conduct or restrict his access to children.

He had unfettered access to children, including supervising overnight work parties with young children.

In one case, a 17-year-old survivor was banned from volunteering after raising complaints while Whitehead remained.

“Whitehead was a life-long offender whose abuse was facilitated by the wilful blindness, indifference or ineptitude of a succession of organisations from Victorian Railways to Puffing Billy,” Ms Glass said.

“The actions or inaction of people in positions of authority, who should have known better, is inexcusable.”

She said nothing could compensate for the trauma caused to victims, who may never receive justice.

“But whatever redress they choose to pursue, they deserve nothing less than the verification of facts, public disclosure of truth and public apologies.”

Ms Glass commended their courage and persistence.

She made nine recommendations, all of which have been accepted by the state government.

All members of the Emerald Tourist Railway Board have resigned and an interim Puffing Billy board has been put in place. Puffing Billy CEO John Robinson also resigned and has been replaced by an acting CEO.

The government intends to apologise to victims in person before issuing a formal public apology.

In an emotional press conference on Monday, Minister for Tourism and Major Events John Eren said Puffing Billy management ignored repeated “cries for help” by children and their families about the abuse.

“There’s some vindication for the victims and obviously one of the perpetrators [Whitehead], through his time in prison, has deceased and is hopefully burning in hell,” Mr Eren told reporters.

Speaking alongside Mr Eren, the acting interim chair of Puffing Billy, Jennifer Fleming, said the organisation would also issue a formal apology.

The government said it would undertake a comprehensive independent review of Puffing Billy’s governance and management to ensure it is equipped to support staff, volunteers and visitors in future.

Local member James Merlino said Puffing Billy would always be an important part of the community.

“But over a long period of time, some people associated with Puffing Billy committed horrific crimes – and for too long their crimes and their victims were ignored,” he said in a statement.

“It is important as community we acknowledge what happened, and come to terms with it … Even more important is that we act to ensure it can never happen again.”

All existing staff and volunteers have been offered counselling and information services.

A dedicated Centre Against Sexual Assault line has been established for victims on (03) 9594 2289.

Distressed readers should contact Lifeline on 13 11 14.

-with AAP