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TRANSCRIPT
October 2, 2007
Wildfire Planning in the SoCal Hills
2012 APA National Conference
Los Angeles, CA
April 14, 2012
Don Elliott, FAICP
FRFP Regulatory Effectiveness Study
1. Investigate how cities and counties are using local regulatory codes and ordinances to address wildfire risk.
2. Identifying how local governments use NFPA model codes and standards that address risk of wildfire in the Wildland Urban Interface (WUI).
3. Outlines how tools like such as zoning overlays and subdivisions regulations, can be used to more comprehensively address the risk of wildfire.
Clarion Associates
Building
Officials
Land
Planners
Fire
Officials
Task 2: Categorization of WUI Tools
Categorization by Scale of Tool • Community Scale
• Hazard /Risk mapping
• Neighborhood Scale
• Site development -- Water supply – Access
• Individual Lot Scale
• Vegetation choice and management – Defensible space
• Structure Scale
• Primary structure: Roof, decks, siding, vents, soffits
• Accessory structure: Sheds, gas tanks, wood piles, fences
Clarion Associates
List of Interview Communities
Clarion Associates
Community Interviews
Southeast
• North Port, FL
• Palm Coast, FL
Northwest
• Clark County, WA
• Missoula, MT
• Bend, OR
• City of Boise, ID
California
• Santa Barbara, CA
• Glendale, CA
Central Rocky Mountains
• Boulder County, CO
• Utah County, UT
Southwest
• Village of Ruidoso, NM
• Santa Fe County, NM
• City of Prescott, AZ
Responses to Interview Questions
Clarion Associates
Why did you adopt WUI standards?
• State mandate or major fire
How did the public process go?
• Cynical public required repeated efforts or education
What WUI regulations did you use for guidance?
• Parts of NFPA and ICC – never the whole thing
• Many wrote their own based on a neighbor’s
Responses to Interview Questions
Clarion Associates
Who administers WUI regulations?
• Fire Marshal – then Building Dept. – then Planning Dept.
What is the review process?
• Development Review Committee – then pre-app
• Inspections by Fire Marshall
What is your most effective WUI regulations?
• Defensible space – then roof standards – then education
Responses to Interview Questions
Clarion Associates
Are your existing tools adequate – or what more is
needed?
• Existing tools are generally adequate
• If additional resources, would put them into education
and enforcement.
Is new or existing development more problematic?
• Existing because more of it and built pre-standards
• Lack of political will to address existing is the key
What is the most significant enforcement problem?
• Maintenance of defensible space over time
The Planning Toolbelt
Clarion Associates
Using Land Use tools to Reduce Fire Risk
•Zoning
•Subdivision
•Site Planning / Design Review
•Growth Management
•State-specific Legislation
•Development Agreements
•Enforcement
Potential Approaches
Clarion Associates
Zoning
Base zone districts
Overlay zone districts
• High fire risk areas can be mapped, and
risk mitigation standards applied in those
areas
• State level maps can be used, even if
resolution is not as high as you want
• Clarify that the official map is the higher
resolution web version (not the one
printed in the paper code)
• Add a process to question or change the
map if you think it is wrong
Potential Approaches
Clarion Associates
Zoning
Potential Approaches
Clarion Associates
Zoning
Fire Hazard Overlay standards
• Defensible space
• Roof materials, vents, building requirements
• Source of fire suppression water
• Wider access road standards / lower grades
• Membership in fire district
Many other tools to implement these goals,
but zoning gives potential buyers better
notice than post-purchase reviews
Potential Approaches
Clarion Associates
Zoning
Permitted Uses and Use-Specific Standards
• Uses that are “permitted” in some use
categories can be made “conditional” in WUI
areas with inadequate fire access or without
fire suppression water source
• Uses can be subject to “use-specific
standards” that apply automatically – without
a hearing –tied to location in a WUI areas,
areas without fire suppression water source,
or adequate access
• Assembly
• Uses involving fuels or hazardous
materials
Potential Approaches
Clarion Associates
Potential Approaches
Clarion Associates
Zoning
Development (Design / Quality) Standards
• Landscaping, tree preservation, access /
connectivity, maintenance
• Different standards can be drafted to apply in
fire hazard areas
• Different types and amounts of landscaping /
defensible space
• Exceptions to tree preservation requirements
• Additional access requirements
• Higher duties to maintain and manage vegetation
Potential Approaches
Clarion Associates
Zoning
While zoning has traditionally been more
focused on initial project design, modern
codes are placing increased emphasis on
management and maintenance
Examples
• Landscaping / tree replacement
• Stormwater facility management
• Lighting / glare
• Transportation Demand Management (TDM)
• Community amenities through HOAs
• Sustainability focus will push further
Potential Approaches
Clarion Associates
Zoning
Incentives can be used when data or
political will for a regulation is missing
In rural (WUI) areas one key incentive
is house size (not density)
Example:
• Basic house permitted is small
• Larger house sizes require more fire-
resistant construction, or location to
ensure defensible space from
accessory structures, or better access,
or sprinklering of home
Potential Approaches
Clarion Associates
Subdivision
The power to divide land for purposes of sale or
development
• Much more important in suburbs and rural areas (including
WUI areas) than mature cities
Generally a separate power granted to local
governments
• Should – but often doesn’t -- align with zoning, and is often
legally defensible even if it doesn’t align
Generally has strong language on public safety, access,
utilities
Can be linked to comprehensive plan goals
Potential Approaches
Clarion Associates
Subdivision
Current trends
• Early land inventory (to avoid sensitive
areas)
• Mandatory clustering in rural areas
(could be used to avoid fire hazards)
• Conservation subdivisions (additional
house size or uses in return for
protection of more undeveloped land)
• “New Communities” standards (large
projects have more flexibility to avoid
hazardous areas through planning)
• Lot orientation for solar access
Potential Approaches
Clarion Associates
Subdivision
Many regulations that could (and
maybe should) appear in zoning can
also be imposed through subdivision
• Development density bonuses
• Sensitive lands protection
• Steep slope avoidance /
development standards
• Edge landscape buffers for new
development
• Wildlife habitat protection
Potential Approaches
Clarion Associates
Site Planning / Design Review
Even when zoning is not being changed
and land is not being divided, many
communities require “site plan review”.
• Generally applies to development
other than single- or two-family
homes
• Review to ensure that circulation,
parking, and access points are safe,
landscaping actually buffers, lighting
won’t glare, etc.
• Could expand to cover risk
Potential Approaches
Clarion Associates
Development Agreements
Cities and counties increasingly use development
agreements to tie down issues of site design, phasing,
infrastructure construction, or site management that are
not addressed in zoning or subdivision
• Site maintenance and funding provisions are common
Opportunity to ensure that:
• Maintenance provisions address defensible space
• Existing accessory structures are relocated or roofs replaced
within a fixed period of time
• Condition new structure approval on old structure removal
Potential Approaches
Clarion Associates
Enforcement
Zoning enforcement is complaint-driven
But when complaints are made inspectors
can cite for other violations observed
• Cross- train to inspect for defensible
space maintenance or unauthorized
accessory structures
• Zoning often allows for easier civil (not
criminal) citations
• “Personal appearance” requirement an
emerging “soft” enforcement tool
The Point
Clarion Associates
The planning and land use “toolbelt”
offers lots of different legal tools that
allow broader cooperation between
planning / zoning / building / fire
officials
. . . And that could be used . . . But
usually aren’t . . . to reduce fire risk in
WUI areas
Fire
Bldg. Land
Use
Joshua S. Huntington, AICP
2012 APA National Conference
April 14, 2012
Los Angeles County Wildfire Planning:
Cooperation in Action
Puerto El Triunfo, El Salvador
Key risks: floods and earthquakes
Wildfire Planning in Los Angeles County: Background
Lake County, IL
Key risks: floods and severe weather
Los Angeles County, CA Key risks: wildfires and earthquakes
Wildfire Planning in Los Angeles County: Setting
Wildfire Planning in Los Angeles County: Setting
Case Study: 2009 Station Fire
Largest
164
90
5,000
Two
Wildfire Planning in Los Angeles County: Case Study
brush fire in LA County history
,000 acres burned
residences and outbuildings destroyed
firefighters and staff from US and Canada worked for over a month
months before the fire was completely out
Wildfire Planning in Los Angeles County: Case Study
Wildfire Planning in Los Angeles County: Station Fire
Wildfire Planning in Los Angeles County: Station Fire
Wildfire Planning in Los Angeles County: Station Fire
Wildfire Planning in Los Angeles County: Station Fire
Wildfire Planning in Los Angeles County: Station Fire
Identify Risks: Very High Fire Hazard
Severity Zones (VHFHSZ)
Utilize Resources: Cooperation
Wildfire Planning in Los Angeles County: Mitigation
Wildfire Planning in Los Angeles County: VHFHSZ
Wildfire Planning in Los Angeles County: VHFHSZ
Wildfire Planning in Los Angeles County: VHFHSZ
Wildfire Planning in Los Angeles County: VHFHSZ
Wildfire Planning in Los Angeles County: Formal Cooperation
Subdivision Committee
Wildfire Planning in Los Angeles County: Formal Cooperation
Wildfire Planning in Los Angeles County: Informal Cooperation
Wildfire Planning in Los Angeles County: Informal Cooperation
Joshua S. Huntington, AICP
2012 APA National Conference
April 14, 2012
Los Angeles County Wildfire Planning:
Cooperation in Action
Molly Mowery │ American Planning Association │ 2012
A Brief History…
Wallace, Idaho
Photo credit: firedaily.com
National forest
Photo credit: “The Big Burn,” Timothy Egan
1909 1948 1958 1968 1979 1989
=
Fire is an essential, natural process:
Replenishes soil nutrients
Removes dead and dying vegetation
Encourages healthy re-growth
Photo credit: US Forest Service
Source: U.S. Census Bureau, 2010 Census, Census 2000, 1990 Census, and 1980 Census
Lightning Fires
10,249 fires (2011)
3.4 million acres/
1.4 million hectares
Human Fires
63,877 fires (2011)
5.4 million acres/
2.2 million hectares
Source: National Interagency Fire Center; www.nifc.gov/fireinfo/fireinfo_stats_lightning.html
Threats to Community Sustainability
Billion dollar wildfire disasters in U.S. in past decade
2011: $1 billion; 5 deaths
2009: $1 billion; 10 deaths
2008: $2 billion;16 deaths
2007: $1 billion; 12 deaths
2006: $1 billion; 28 deaths (20 firefighters)
2003: $2.5 billion; 22 deaths
2002: $2.0 billion; 21 deaths
Source: National Climatic Data Center
Wildfires affect Tourism, Business, Infrastructure, and Natural Resources
Wildland fires entering suburban environment threatens public health and safety
South Carolina (2009) Photo credit: South Carolina Dept of Forestry
Simultaneous ignitions overwhelms response capabilities, requires long-term recovery
WUI development decreases ability to manage landscapes with prescribed burning
Changing factors are increasing fire severity and extending burn seasons
Climate change = increased
temperatures, longer wildfire seasons, droughts
Pine Beetle = catastrophic fire conditions, increased firebrands, unhealthy forests
Mitigation Opportunities
Voluntary:
Community Wildfire Protection Plans
Education and Outreach:
Firewise Communities/ USA® recognition program
Ready, Set, Go! community preparedness program
Mandatory:
State and Local Hazard Mitigation Plans
Building Codes
Development Standards
Vegetation Management Ordinances
Plans engage foresters, community leaders, fire officials, and the public to address:
Community wildfire risk
Structural ignitability
Capacity and response
Critical infrastructure
Access, capacity, and response
Photo credit: Firewise Communities/USA Program
Voluntary homeowner programs to make neighborhoods safe
700+ Firewise Communities in 41 states
Provides resources for protecting property, pursuing community grants
Codes can address WUI hazard through regulation of: Land development & siting
Vegetation & landscaping
Building materials
Access
Water supply
Photo credit: South Carolina Division of Forestry
THANK YOU