Managing the Impact of the Wildland-Urban Interface

Jeremy A. KellerWildland-Urban Interface Fire SpecialistGulf Coast Refuge ComplexGautier, Mississippi

Defining the Wildland-Urban Interface

Everybody wants a clear and simple

definition, such as:

“All structures within ¼ mile of wildland

fuels”

Difficult to define in absolute terms

Critical distances will vary depending on

local circumstances: Fuel types,

topography, values at risk

Too much variation to use a “one size fits

all” approach

A holistic approach is more appropriate

Should account for economic and

environmental values, not just structures at

risk

Refer to Paul Summerfelt’s article in Fire

Management Today (Winter 2003):

The Wildland/Urban Interface: What’s

Really at Risk?

A Two-Part Problem

The ecosystem aspect of the problem

Wildlands are the source of the

hazard to human values at risk

Aspects of the wildland environment

can also be a value at risk … water

quality, timber, recreation, etc.

The strength of the land management

agencies lies in understanding how to

manage this part of the problem

The human aspect of the problem

Humans define what is a value at risk

Humans create risk by living near and

visiting wildland areas

The strength of our cooperators in

structural fire and related agencies

lies in understanding how to manage

this part of the problem

Fuels

Ecosystem

“Wildland”

People

Communities

“Urban”

WUI

Mitigation vs. Prevention

Wildfire prevention seeks to stop

fires from occurring by reducing

ignition sources or separating

fuels from ignition sources

Prevention = Offense

Wildfire mitigation seeks to reduce

the negative impacts of those fires

that occur in spite of prevention

efforts

Mitigation = Defense

An Integrated Approach

The basic goals of any wildfire

mitigation program are to:

1.Reduce hazards to life

and property

2.Improve firefighter safety

3.Maximize wildland

ecosystem benefits

An Integrated Approach

Fire prevention programs are based

on the “3-E” model of intervention

strategies:

Education

Engineering

Enforcement

An integrated strategy incorporates

prevention and mitigation strategies,

and requires a further intervention:

Ecosystem Management

Think in terms of a “4-E”

strategy

The “3-E” Approach

Education interventions are those activities that:

Create an awareness of the fire problem

Provide information needed to understand the risks

and hazards associated with wildfire

Change attitudes when necessary

Change behavior when necessary

Engineering interventions are those activities that:

Remove the heat source from the fuel

Reduce or eliminate fuels

Shield fuels from heat sources

Enforcement interventions are those activities that:

Ensure compliance with fire prevention regulations

Determine the cause of fires

Seek to punish those who set illegal fires

As defined in P-101 Introduction to Wildfire Prevention

(1997 version) … these definitions are also true of

structural fire prevention programs

Education

Education programs are an

opportunity to “market” your fire

management program to the

public

All education programs should

seek to build a basic

understanding of wildland fire and

management practices

When well executed, this will:

Increase public support for

management programs

Build good will toward fire

management programs

Build “tolerance” for negative

aspects of management, i.e.

smoke

Education

Wildland fire education messages

are difficult to effectively deliver

To the public, we often seem to

send mixed messages regarding

fire:

On the one hand, we have an

ongoing, nationally-recognized

fire prevention campaign

On the other hand, we ourselves

intentionally set fires

This “good fire / bad fire” concept

can be a tough sell to many

members of the public

Fire educators require specialized

training to be able to operate

effectively

Education

From a Prevention standpoint, education

programs should seek to…

Increase public understanding of

wildfire danger and the negative

impacts of undesired human

ignitions

Change public attitudes and

behavior regarding possible ignition

sources, such as:

Children playing with fire

Untended campfires

Debris burning

Hot work (welding, etc.)

Programs should focus on adults

and children

Education

From a Mitigation standpoint,

education programs should seek to

reduce the impact of wildfire

incidents to communities by:

Getting residents to adopt fire safe

building and landscape practices

(FireWise)

Building support for fire safe

development practices in

communities

Building support for controversial

land management and mitigation

practices (prescribed fire)

These programs will focus on adults

… residents and policy-makers

Engineering

From a Prevention standpoint,

engineering interventions seek to

eliminate potential sources of

undesirable ignitions through

technical or mechanical means:

Spark arresters on combustion

engine exhaust systems on

chainsaws, ATVs, etc.

Wire-mesh screens on chimneys

and burn barrels

Campfire rings and grates in

recreation areas

Use of alternative debris disposal

methods, such as:

Tub grinders

Chippers

Air-curtain incinerators

Engineering

From a Mitigation standpoint,

engineering interventions seek to:

Reduce potential for wildfires to

spread to communities through

creation of fuel breaks and zones of

reduced fuel loading in wildland

areas

Limit the impact of wildfires to

communities through fire-safe

landscaping practices

Limit the impact of wildfires to

communities through adoption of

fire-safe building materials and

practices for structures, such as:

Non-combustible roofs and siding

Reduction of entry points for

firebrands (soffits, vents, etc.)

Elimination of structural ladder fuels

(wooden decks, etc.)

The national FireWise website is the

definitive source for information on this

fire-safe building and landscaping

practices:

www.firewise.org

But also see the Federal Alliance for Safe

Homes (FLASH) site:

www.flash.org

EnforcementFrom a Prevention standpoint,

enforcement interventions seek to

discourage undesirable ignitions

Fire use restrictions may be put in effect

during certain periods:

County burn bans

Bans on outdoor welding, mowing, other

hot work

Reinforcement of other prevention

interventions such as:

Enforcement of campfire restrictions

Prevention patrols and public contact to

reinforce education messages and

encourage desirable behavior by the

public

Investigative techniques seek to:

Determine fire cause for analysis of trends

and better targeting of specific ignition

sources for intervention

Collect evidence for possible prosecution

of criminal or negligent incendiary fires

Enforcement

From a Mitigation standpoint,

enforcement interventions seek to

limit the negative impacts of wildfires

to communities

Adoption of ordinances, codes and

regulations to mitigate wildfire threat

to communities:

National Fire Protection Association

(NFPA) standards … see below

International Code Council (ICC)

Wildland-Urban Interface Code

Florida “Hawkins Bill” burning

Brush clearance ordinances in

California

Key NFPA standards: http://www.nfpa.org

NFPA 1141 Standard for Fire Protection Infrastructure for Land Development in Suburban and

Rural Areas

NFPA 1142 Standard on Water Supplies for Suburban and Rural Fire Fighting

NFPA 1144 Standard for Reducing Structure Ignition Hazards from Wildland Fire

Ecosystem Management

Effective management of the land is the

strong point of natural resources

agencies

Well-managed natural landscapes pose

less of a fire threat to communities and

other values

Wildlands also have their own values to

communities and local economies:

Recreation, watershed protection, timber,

grazing, etc.

Fuels reduction projects offer short-term

mitigation solutions… sound land

management is the only effective and

economic long-term solution

However, short-range mitigation projects

must continue because “perfectly

managed” public lands are still a long

way off in most cases

Collaboration is Key

The nature of the WUI fire problem

requires collaboration among all

stakeholders

Different communities of practice have

different skills … all are needed

Natural resource agencies have skilled

land managers

Fire departments have public safety

education expertise

Community groups can ensure “buy in”

for any plans that are developed

If you hope to avoid serious problems

with WUI issues, you must seek

cooperative relationships with these

groups

No one stakeholder can be considered a

“lead agency” for WUI issues… all are

impacted and all need to work together to

address the problem

Mitigation is Mitigation

Actions taken to mitigate the wildfire

threat usually mitigate against other

disasters as well … examples:

Forests maintained at a sustainable

density are less prone to severe

wildfire, but also insect infestations

and wind damage

Well-managed steep areas are less

prone to severe fires and therefore

help to reduce flooding and

landslides

Improved access to communities for

wildfire incidents also increases

general safety for the area

Metal roofs are fire resistant as well

as resistant to wind damage in

hurricanes

WARNING: Be sure that mitigation

guidance given to residents is

consistent with guidance they are

receiving from other sources…

otherwise only the “most dreaded”

hazard will win

Mitigate… but be Prepared Some claim that there is too much focus on

defensible space and fighting wildfires at

the expense of natural resource values

Effective land management and sound

development practices will ease the wildfire

problem …. eventually

In the meantime, we still have to focus on the

short-term protection of values at risk through

mitigation and preparedness

Saying that “people should know better” will

not get you very far or win you many friends

Effective mitigation programs will take

years … decades in most cases … to fully

mature

Meanwhile, development in wildland areas

continues

Preparedness measures must always be

considered to protect life safety and values-

at-risk

Consider the following six

factors when developing

WUI preparedness plans…

1. Water Supply

2. Evacuation

3. Mobility Hazards

4. Logistical Facilities

5. Exercise Program

6. Legal Agreements

1. Water Supplies• Finally… an up-side to development in

wildland areas:

Fire protection water systems of some kind

will follow development in most cases

• Driven by economic and legal considerations

• Water supply for fire protection factors

heavily in homeowner and commercial

insurance (ISO) ratings

• State/Local regulations may require minimum

water supplies as part of development

approval

• Rural water supplies may take several forms:

• Hydrant / Water Main Systems

• Dry Hydrants

• Tanker Shuttles

• Storage Tanks / Cisterns

Fire Hydrant Color Decoder

• Per NFPA 291 … may not be used in

your area

• Color of bonnet/caps indicate flow

rates at 20 psi residual pressure

Class C Less than 500 gpm Red

Class B 500-1000 gpm Orange

Class A 1000-1500 gpm Green

Class AA More than 1500 gpm Blue

http://www.firehydrant.org/

Make Water Supply Work for You What can you do to take advantage of new or

improved water supply capabilities?

Ensure that your equipment is compatible

with water supply systems of cooperators

Adapters for engines

Correct hydrant wrenches

Specialized hook-ups for rapid fill

Locate and map water supplies

Develop cooperative alternative water

sources

Dry Hydrants

Drill engine crews on interface water

handling procedures

Using hydrant systems

Working with fire department tankers

Sign agreements for guaranteed water tender

support

Mutual aid for wildfire response

Paid agreements for prescribed fire

Why draft when you can have

water delivered?

Fire Department Terminology:

Tanker = Water Tender

Pumper = Engine

Brush Truck = Type 6 Engine

Truck = Apparatus for which water

handling is not a primary

mission (i.e. rescue, ladder,

etc)

Rural Water Supply References U.S. Fire Administration (USFA) distance learning

courses about rural water supplies

Q-217 Alternative Water Supply: Planning and

Implementing Programs

Q-218 Testing and Evaluation of Water Supplies for Fire

Protection

Enroll in both at NFA Online:

http://www.nfaonline.dhs.gov/browse/index.shtm

Your state fire academy may have additional courses on

rural water supply

Understand ISO ratings (or state-specific rating system)

and their impact on:

Fire department planning and priorities

Commercial/residential insurance costs

http://www.isomitigation.com/

Get smart about rural water

supply systems!

Read and understand applicable NFPA standards: http://www.nfpa.org

NFPA 1141 Standard for Fire Protection Infrastructure for Land Development in Suburban

and Rural Areas

NFPA 1142 Standard on Water Supplies for Suburban and Rural Fire Fighting

NFPA 1144 Standard for Reducing Structure Ignition Hazards from Wildland Fire

2. Evacuation Plan ahead to get civilians out of danger … and

out of the way of operations

While Federal agencies have an indirect role in

evacuation of residential areas, we must still be

engaged in the planning process

Recent studies have suggested that shelter in

place strategies may be appropriate for some

communities

Requires significant planning and public

education to be safe and effective alternative

Consider characteristics of local population

before promoting shelter in place, i.e. high rates of

respiratory ailments

Don’t forget livestock evacuation

FEMA distance learning course:

IS-111 Livestock in Disasters

http://training.fema.gov/EMIWeb/IS/is111.asp

3. Mobility Hazards

Identify & mitigate potential choke-points

during the planning process:

Narrow roads

Inadequate bridges

Dead-ends

Low bridges / overpasses

Know where your equipment can go safely

… before the fire

This should be a cooperative effort

between you and other local agencies …

resources may be deployed across area

Capture knowledge in GIS or other maps

to brief incoming resources

4. Logistical Facilities

Pre-identify potential logistical and

incident support facilities

Bases / Camps

Staging areas

Helispots, dip sites, etc.

Develop and sign agreements for

use ahead of time in order to ensure

availability during incident

Give preference to government or

non-profit owned facilities for cost

savings

5. Practice, Practice, Practice

The only way to test plans short of an

actual incident is a progressive

exercise plan

Work with local Emergency Managers

to develop a WUI-based exercise

program

Develop interagency Type III teams to

manage local incidents… build local

capacity

Currently a DHS push to develop All-

Hazard Type III teams at the state and

local level

Potential grant and training

opportunities for local cooperators

6. Lawyers

Get MOU/MOA documents drafted and

signed … before the incident

Consider agreements for the following

areas:

Mutual Aid / Automatic Aid

Equipment rental rates

Facility rental rates

Access through private property

Having agreements signed and in place

ahead of time will save considerable trouble

during and after the incident

Further Reading… Public Fire Education Planning: A Five-

Step Process. Aug 2002. US Fire

Administration publication FA-219. (download/order free at:

www.usfa.dhs.gov/applications/publications )

A systematic method for identifying where

education programs can make a difference in

public behavior, how to implement the program

and monitor its progress

Strategies for Marketing Your Fire

Department Today and Beyond. Jul 1998.

US Fire Administration publication FA-182. (download/order free at:

www.usfa.dhs.gov/applications/publications )

How to “sell” your fire program to the public

and win community goodwill

Essentials of Fire Department Customer

Service. 1996. Alan Brunacini, Chief,

Phoenix Fire Dept (retired). Fire Protection

Publications, Oklahoma State University.

How to put the public’s interests first in your

program, and earn trust and goodwill in the

process

Further Reading…

The Wildland/Urban Interface: What’s Really at

Risk?. Paul Summerfelt. Winter 2003. Fire

Management Today (Vol. 63, No. 1).

http://www.fs.fed.us/fire/fmt/

Why simple definitions of interface areas simply

do not work

Scenic Duty. James William Witt, PhD. May

2007. Fire Chief Magazine.

http://firechief.com/tactics/firefighting_scenic_duty/index.

html

An in-depth look at the mechanics of interagency

coordination, planning and cooperation… plus a

4-C approach to interface planning

The 4TH Element. Jeremy Keller. Apr 2006. Fire

Chief Magazine. http://firechief.com/wildland/firefighting_th_element/index.ht

ml

More information on the 4-E approach to wildfire

mitigation

Jeremy A. KellerWildland-Urban Interface Fire Specialist

Gulf Coast National Wildlife Refuge ComplexTel: 228-497-5780 x30 // Cell: 228-990-0673

jeremy_keller@fws.gov