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