Presentation given as part of October 2007 (San Antonio, TX) session of the NWCG course M-581 Fire Program Managment

1. Managing the Impact of the
Wildland-Urban Interface
Jeremy A. Keller
Wildland-Urban Interface Fire Specialist
Gulf Coast Refuge Complex
Gautier, Mississippi

2. 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?

3. A Two-Part Problem
The ecosystem aspect of the problem
 Wildlands are the source of the
hazard to human values at risk People Fuels
 Aspects of the wildland environment Communities WUI Ecosystem
can also be a value at risk … water “Urban” “Wildland”
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

4. 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

5. 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

6. 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

7. 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

8. 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

9. 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

10. 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

11. 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

12. 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

13. 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 The national FireWise website is the
fire-safe building materials and definitive source for information on this
practices for structures, such as: fire-safe building and landscaping
 Non-combustible roofs and siding practices:
 Reduction of entry points for www.firewise.org
firebrands (soffits, vents, etc.)
But also see the Federal Alliance for Safe
 Elimination of structural ladder fuels
(wooden decks, etc.) Homes (FLASH) site:
www.flash.org

14. Enforcement
From 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

15. 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

16. 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

17. 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

18. 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 WARNING: Be sure that mitigation
as resistant to wind damage in guidance given to residents is
hurricanes consistent with guidance they are
receiving from other sources…
otherwise only the “most dreaded”
hazard will win

19. 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
Consider the following six
 Effective mitigation programs will take factors when developing
years … decades in most cases … to fully WUI preparedness plans…
mature 1. Water Supply
 Meanwhile, development in wildland areas 2. Evacuation
continues
3. Mobility Hazards
 Preparedness measures must always be
4. Logistical Facilities
considered to protect life safety and values-
at-risk 5. Exercise Program
6. Legal Agreements

20. 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
Fire Hydrant Color Decoder
• Rural water supplies may take several forms: • Per NFPA 291 … may not be used in
• Hydrant / Water Main Systems your area
• Dry Hydrants • Color of bonnet/caps indicate flow
rates at 20 psi residual pressure
• Tanker Shuttles
Class C Less than 500 gpm Red
• Storage Tanks / Cisterns
Class B 500-1000 gpm Orange
Class A 1000-1500 gpm Green
Class AA More than 1500 gpm Blue
http://www.firehydrant.org/

21. Make Water Supply Work for You
 What can you do to take advantage of new or Why draft when you can have
improved water supply capabilities? water delivered?
 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 Fire Department Terminology:
 Using hydrant systems Tanker = Water Tender
 Working with fire department tankers Pumper = Engine
 Sign agreements for guaranteed water tender Brush Truck = Type 6 Engine
support Truck = Apparatus for which water
handling is not a primary
 Mutual aid for wildfire response
mission (i.e. rescue, ladder,
 Paid agreements for prescribed fire etc)

22. 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
Get smart about rural water
 Understand ISO ratings (or state-specific rating system) supply systems!
and their impact on:
 Fire department planning and priorities
 Commercial/residential insurance costs
http://www.isomitigation.com/
 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

23. 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

24. 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

25. 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

26. 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

27. 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

28. 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

29. 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

30. Jeremy A. Keller
Wildland-Urban Interface Fire Specialist
Gulf Coast National Wildlife Refuge Complex
Tel: 228-497-5780 x30 // Cell: 228-990-0673
jeremy_keller@fws.gov