Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Control of Forest Fires as Part of the
Spanish Forestry Plan 1
Ricardo Vélez Muñoz 2
Summary
x
The analysis made by the Spanish Forestry Plan identifies the social and economic causes
which have led to the intensification of forest fires in the last three decades. Among
causes the following are noteworthy
x
The abandonment of agricultural land
x
Economic policies which encourage this abandonment and its subsequent reforestation
with the aim of reducing agricultural surplus.
x
Maintenance of traditional practices of burning agricultural waste products, pasture and
rubbish.
x
Conflicts arising from the limitations of use (Protected Open Spaces), the conflicts of
hunting, the labour market in the forestry sector itself, the generalised process of
urbanisation of the land, revenge, vandalism etc.
x
Misuse of forestry areas by the urban population, either as visitors for recreational
purposes, or to build second or permanent homes.
The number of outbreaks of fire shows a growing trend both in Spain and in the other
Mediterranean countries of the European Union.
Suppression resources have notably have improved in terms of strength and technology
in the last ten years, and have achieved a high degree of efficiency as illustrated by the
reduction of the forest surface area burned. This efficiency has limited the impact of fire but
paradoxically, this has led to risk that new fires spread due to the accumulation of fuel.
The problems and needs detected in the diagnostic phase of the Spanish Forestry
Scheme cantered basically on identifying causes, the need to promote preventive action with
particular emphasis on silviculture and the maintenance of suppression potential. As a result
the three main objectives are:
x
Determining and acting on the causes both immediate and structural.
x
Continuous improvement in preventive actions with particular emphasis on preventive
silviculture and heightening of social awareness.
x
Homogenisation by raising the level of efficiency in all the competent suppression
administrative departments.
The required measures are detailed in three sections: Planning and coordination,
Prevention and Suppression
As an indicator of the results the annual “severity index” has been chosen calculated as
the percentage of burned forest area in respect of national forest land. 0,3 percent was set as
1
2
An abbreviated version of this paper was presented at the second international symposium on fire
economics, planning, and policies: a global view, 19–22 April 2004, Córdoba, Spain.
Director of Department of Forest Fire Control, Ministry of the Environment, DGCN, Gran Vía San
Francisco4, 28005 Madrid, rvelez@mma.es.
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an objective to be achieved by 2008 and in 30 years 0,2 percent. This is a realistic goal since
in 2002 the severity index dropped to 0,39 percent, in contrast to 1,6 percent in 1994 and the
indexes close to 1 percent which were customary in previous decades.
Introduction
Forest fires adversely influence the stability of forest ecosystems, stripping soils and
contributing to erosion. The climatic characteristics of the Mediterranean medium
with long summer droughts accompanied by high temperatures and often with strong
overland winds, cause a high degree of drought in the vegetation raising the risk of
ignition and propagation in the event of some agent or element of provocation In the
last twelve years, the number of fire outbreaks shows a growing trend while the
surface burned notably fluctuates from one year to the next according to drought and
wind conditions of each particular year
Despite the reduced number of fires (0,2percent as an annual average) which
become large scale fires covering over 500 ha. these cause the most serious
environmental and economic impact. The extent of these fires is influenced by
climatic conditions but also by the continuity of the fuel and also due to the
application of fire fighting techniques unsuitable to a forest environment .
Analysis of the Situation
The analysis carried out by the Spanish Forestry Plan identifies the social and
economic causes which have led to the intensification of forest fires in the last three
decades, notably the following:
x
Abandonment of agricultural land which is then invaded naturally by
colonising species such as pines and scrub which grow into continuous
dense masses with scant management and which provide no interruptions
which would halt the progress of fire once it had broken out.
x
The economic policies which encourage this abandonment and their
subsequent reforestation with the aim of reducing agricultural surplus
without the simultaneous implementation of preventive forestry
programmes with sufficient economic resources to act on accumulation of
fuel produced. This accumulation has a decisive influence on the extent of
area burned.
x
Persistence of traditional agricultural practice of burning pasture and waste
which is identified as the cause of numerous deliberate fires, particularly in
the rural Northeast and Cantabria.
x
Among other motivations for deliberate fires, the conflicts arising from
limited use may also be mentioned (protected areas) the conflict of hunting,
the labour market in the forestry sector, the generalised process of
urbanisation of the land, vengeance, vandalism etc.
x
Misuse of forest areas by the urban population either as recreational
visitors or in building second or permanent homes.
It is important to point out that the number of fires attributed to unknown
causes, despite the fact that it has considerably reduced in recent years due to the
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Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Session 5A.—Control of Forest Fires in the Spanish Forestry Plan—Vélez Muñoz
application of advanced investigation techniques, is nevertheless still significant,
particularly in some Autonomous Communities.
From the attached analysis of indicators it may be deduced that the number of
fire outbreaks shows a growing trend both in Spain and other Mediterranean
countries of the European Union, although many of these fires are no more than
outbreaks (burning less than 1 ha) their high number is a challenge to results obtained
by suppression methods and requires the continuous increase of investment. Given
that the aims of prevention include, among others, the reduction of this number; it is
obvious that the level of desirable concentration of preventive action has not yet been
reached.
Indicators also show that the degree of efficiency reached by suppression
resources which have been technologically improved and reinforced considerably in
the last ten years may be considered as high as is shown by the reduction in the forest
surface area burned. This efficiency has let to limitation of fire impact however
paradoxically to the gain of risk that new fires will extend further due to the
accumulation of fuel.
However, the technological improvement in suppression methods has not
reached the same levels in all the Autonomous Communities, therefore the results in
respect of reduction of percentage of the area burned is heterogeneous. This has
necessitated increased State support (Ministry of Environment) in the areas of most
concern, such as promoting the application of new technologies, training personnel
and investigating new methods and materials.
Objectives of the Spanish Forestry Plan
The problems and needs already defined in the Spanish Forestry Plan analysis are
based fundamentally on the identification of causes, the need to promote preventive
action with particular emphasis on silviculture and the maintenance of potential
suppression. As a result the three objectives proposed are as follows:
x
Determining and acting on the causes of fire, both immediate and
structural.
x
Continuous improvement of preventive action with particular emphasis on
preventive silviculture and social awareness.
x
Homogenisation by raising the level of efficiency in tall the Administrative
departments involved in suppression.
Measures included in the Plan
In order to develop these objectives the following actions are proposed:
x
With respect to planning and coordination
x
Coordination of plans of the Autonomous Communities and the General
State Administration through the Committee for the Control of Forest Fires
(CLIF), based on distribution of risk and cost efficiency criteria.
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x
Promotion of localisation of forest fire control by drafting and applying
local area control plans devised by technically competent personnel with
specific training.
x
Monitoring of fire hazard with detailed statistics (EGIF database),
intensifying the application of remote detection and GIS technologies to
assess damage and determine risk.
x
Extension of hazard prediction systems and the behaviour of fire by
reinforcing the forest meteorological network in coordination with the
National Institute of Meteorology.
x
Periodic review of hazard indices constantly adapting them to real
conditions in specific zones.
Contracting over several years, by the Administrative bodies responsible, of
sufficient personnel and companies to control forest fires.
x
Coordination of the services and supplies contracted by the state
departments (State Dept/Autonomous Communities) to achieve scale
economies.
x
Promote professional capabilities of personnel working in forest fire control
by means of a general system of approval (State Dept/Autonomous
Communities) and certification bearing in mind, moreover practical
experience.
With respect to prevention
x
Improve the system for identification of causes to reduce the percentage
classified as unknown by means of training courses for forest agents and
police and the number of investigation brigades working in the various
Autonomous Communities.
x
Introduction of legal regulations which would discourage use of fire for
economic interest and the application of sanctions envisaged by forestry
legislation and the Penal Code.
x
Increase public awareness to avoid the use of fire in forest land by means of
both permanent and seasonal campaigns.
x
Evaluation of possible undesirable effects of the application of community
systems of grants for extensive livestock keeping..
x
Specific programme for prevention of fires caused by farmers and stock
keepers by means of:
x Promoting direct awareness of the rural population of the dangers
caused by fire to its economy
x Joint organisation of controlled burning by the Administration
and farmers and livestock owners’ associations, promoting the
running of local fire prevention teams
x
Reinforcement of mobile vigilance in an effort to discourage, promoting the
equipping of municipal patrols in areas of greater risk
x
Promoting voluntary associations for preventive monitoring.
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Session 5A.—Control of Forest Fires in the Spanish Forestry Plan—Vélez Muñoz
Encouraging the formation of forestry associations for intensification of
preventive silviculture (fire break areas, species diversification, controlled
burning etc) in private woodland and strengthening of protective infrastructure
(water outlets, paths, small area bases etc.)
x
Funding of silviculture projects and preventive infrastructure carried out by
Autonomous Communities.
x
Development of guidelines for fire break areas in the urban/forest interface
for the self protection of housing complexes included in the urban
planning..
x
Monitoring of the application of the Programme for reforestation of
Agricultural Land in order to ensure that preventive forestry work is carried
out.
With respect to the maintenance and improvement of the level of efficiency of
suppression
x
Maintenance of a fleet of amphibious aeroplanes and helicopters for
general aerial cover with the collaboration of the Air Force and the Guardia
Civil.
x
Improvement of coordination for addressing large scale fires by using all
the
State
and
regional
departments
(Autonomous
Communities/Government Dept) Air Coordination Units, Mobile
Meteorological and Transition Units and Reinforcement brigades (BRIF).
x
Extension of decision making systems by means of applying to specific
territories the computerised methods of prediction and simulation of fire
behaviour and resource management.
x
Maintenance of a system of normalisation of materials and equipment by
means of the Committee for the Control of Forest Fires, (CLIF), to
guarantee the quality and improve scale economies of the contracting by
different administrative departments with their respective budgetary funds.
x
Complementation of both suppression systems currently in use one based
on urban fire fighters and the other in rural personnel duly specialised so as
to make the most of the advantages of each in each case.
General Indicator of the results of Forest Fire prevention
Plan
As indicator of the results the “severity index” calculated as the percentage of forest
surface area burned with respect to national forest.
As an objective up to 2008 the target is 0,3 percent and in 30 years 0,2 percent
This is a realistic objective since in 2002 the severity index was lowered to 0,39
percent, a contrast to 1,6 percent in 1994 and the indices close to 1 percent which
were common in previous decades. In 2003, however the index has grown once more
to 0,5 percent.
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Implementation of the Plan
The Government approved the Spanish Forestry Plan in 2002, and its implementation
required and urgent revision of basic forestry legislation which dated from 1957 and,
although technically it continued to be valid it was not compatible with the new State
structure or the principles of Forestry Strategy in force.
In 2003 the new Forestry Law which had been conceived by the National Forest
Council, was debated and approved with the participation of all state and regional
departments together with economic, professional and scientific sectors involved
with woodland.
The inventory is currently being updated of all the material and economic
resources for all the actions relating to the control of forest fires which the relevant
departments provide overall, in order to identify the deficiencies in budget.
In addition, execution of the plan requires that priorities be established
according to the circumstances as they develop.
out:
Currently, following the 2003 campaign against forest fires the following stand
-
Prevention of the urban/forest interface.
-
Systemized coordination of suppression
administrative departments overall.
-
Certification and authorization of the training of personnel at all levels.
resources
provided
by
References
Ministerio de Medio Ambiente, 2000.- Estrategia Forestal Española, Madrid.
Misterio de Medio Ambiente, 2002.- Plan Forestal Español, Madrid.
Boletín Oficial del Estado, 2003.- Ley 43/2003, de 21 de noviembre, de Montes, BOE nº 280,
22-11-2003.
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Session 5A.—Control of Forest Fires in the Spanish Forestry Plan—Vélez Muñoz
APPENDIX
Prevention Indicators, National Total: 1991-2000
Annual Number of Disasters
Between 1991 and 2000, the annual number of disasters grew at a national level.
From almost 14,000 disasters in 1991 the number rose to more than 23,000 in 2000.
Analysis of Causes
With respect to the percentage of disasters with known causes, a growing trend
developed between 1991 and 1995, from 62 percent in 1991 to more than 80 percent
in 1995. After 1996 the percentages were approximately 82 percent.
An analysis of the percentage of disasters according to the causes in the twelve
years between 991-2000, noted that 60 percent were deliberate, with 47 percent of the
forest area affected. This was followed by 13,7 percent of disasters identified as
negligent, with 16,9 of forest surface affected. 3,9 percent of disasters were caused
by lightning which burned 11,2 percent of the surface area. In this chapter it should be
pointed out that in more than 19 percent of the disasters the cause is unknown (17,6
percent of the surface area).
Negligence
With regard to the type of negligence (13.7 percent of disasters between 1991 and
2000), fires caused by agricultural burning were those which had the greatest effect,
both in number (27.3 percent) as in forest surface area (18.5 percent). 16.9 percent
were through burning of pasture (13.3 percent of the surface), 11 percent due to
burning of waste (15.7 percent of the surface), 8.5 percent caused by smokers (13.1
percent) and 5.3 percent by bonfires (12.8 percent of the surface area). It should be
recalled that 18.4 percent of the number of disasters (more than 21 percent of the
forest area affected) were not due to the typical negligence of the information
gathered.
Deliberate Fires
Of the deliberate fires caused between 1991 and 2000 (60 percent), most outbreaks
were in August (more than 27,000 disasters), March (more than 20,000) and
September (20,000 disasters). Detection of deliberate fires was greater between 14:00
and 19:00 hours, with maximum number at 16:00 (more than 10,000 disasters
detected). Development of the rest of the disasters was more or less parallel for both
indicators with lower values.
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With respect to motivation in 3.9 percent of the deliberate disasters were due to
the following. Of these 38.5 percent were due to pasture burning, 35.2 percent by
agricultural burning and 12.8 percent by pyromaniacs as the main causes.
Annual distribution of fires motivated by pasture burning reached its height in
March with more than 240 fires.
Suppression Indicators, National Total: 1991-2000
Outbreaks
The percentage of outbreaks (fires which spread over less than 1 hectare) in the first
five years of study showed a slightly lower trend from 65 percent in 1991 to 60
percent in 1995. In 1996 the value dropped to 45 percent and since then it has not
stopped rising until it reached 60percent again in 2000.
The percentage of national outbreaks in the campaign period (1 July to 30
September annually) clearly exceeded the values observed outside the campaign
(remainder of the year) while in 1995 values were the same for both periods (30
percent).
Forest Surface Area Affected
The percentage of forest surface affected by fire during the first five years studied
(1991-1995) was greatest in 1994 (1.6 percent), followed by the value reached in
1991, of almost 1 percent. In the remaining years the affected forest area was less than
0.7percent, although a growing trend has been observed since 1996.
Except for the years 1992, 1995 and 1997, forest surface area affected was
greater in the campaign period than outside it. In particular the year 1994 stands out,
during which there were more than 350,000 ha. and also 1991, with over 210,000 ha.
With respect to cultivated forest areas, the behaviour was clearly parallel to that
described for overall forest area. The most affected years were 1994, with 220,000 ha
approximately and 1991 with 100,000 ha. In the remaining years during the twelve
year period 48,000 ha of cultivated forest areas were burned both during the campaign
and outside it.
Arrival times
The average reports without information with respect to the period 1991-2000 were
2.8 percent and the percentage consigned to “without intervention” was 7.5 percent,
figures which were discounted in the estimation calculations of the following
indicators:
Less than 15 minutes
With respect to the percentage of fires with arrival time of less than 15 minutes values
were maintained between 50 and 55 percent for 10 years with a slight downward trend
from 1996 onwards.
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Session 5A.—Control of Forest Fires in the Spanish Forestry Plan—Vélez Muñoz
Less than 30 minutes
The percentage of fires with arrival time of less than 30 was also similar during the
ten year study period with values of around 80 percent. Similarly there is a slight
downward trend from 1996 on.
The values reached for this indicator in campaign were more than those
obtained outside it, between 5 and 10 percent annually.
Size
The percentage of outbreaks between 1991 and 2000 was 60.2 percent, and the
surface area covered was 1.5 percent. 26 percent were fires covering between 1 and 5
ha. Although the percentage of forest surface area affected by these fires was 6.4
percent. 12.7 percent of fires burned between 5 and 100 ha., which was in fact 26.8
percent of the forest area affected. 20.4 percent of the forested area burned
corresponded to 0.9 percent of the number of fires extending over between 100 and
500 ha. 8.2 percent of the forest area burned was related to 0.1 percent of fires
between 500 and 1000 ha. Another 0.1 percent were fires between 1,000 and 5,000 ha,
which were equivalent to 15,9 percent of the surface area affected and finally, less
than 0.02 percent of fires covered over 5,000 ha burned 20.8 percent of the total of
the surface area affected.
System of Detection
With respect to the system of detection used attention should be drawn to the
permanent vigilantes throughout the study period with more than 30 percent of fires
detected practically every year. For ten years the work of forest agents during this
time was kept at between 10 and 15 percent of fires detected.
Percentages of around 5percent were attributed annually to mobile vigilante
teams. Finally it should also be pointed out that from 1998 onwards detection by
private individuals accounted for 25 percent in the year 2000. However, there still
remained 20 percent (year 2,000) of fires assigned to the category “others” in terms of
detection systems.
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Annual Distribution
The greatest incidence of forest fires on a national level in the twelve year period
1991-2000, was in the summer months between June and October. This fact was due
basically to outbreaks of fire, almost 30,000 in August since with respect to the
number of fires another period between February and April was also noteworthy. The
months with most fires were March and August with approximately 15,000 fires
apiece. The greatest surface area affected of both cultivated forest and non-forested
land occurred in July (almost 200,000 ha. of non-forested area and 250,000 ha. of
forested areas) and August (260,000 ha. of non-forested and 190.000 ha of forested
areas). The next most affected surface areas were in September and March.
Type of Vegetation
With respect to the type of vegetation affected, between 1991 and 2000 annually, the
majority of fires affected only uncultivated forest land. Minor outbreaks covering less
than 1000 m2 and subsequently the fires which covered cultivated vegetation and
natural forest land together. From 1995, the smallest number of fires was those which
burned only cultivated forest.
Aerial Resources
With regard to the activity of aerial resources, the percentage of fires where aerial
resources intervened showed a slight growth trend over ten years of study, exceeding
18percent in the most recent years. The intervention of these resources was clearly
greater in the campaign months than at other times. 16.5 percent of fires where aerial
resources intervened during the twelve year period in almost 59 percent helicopters
were used in 19.6 percent fire suppression plans, 10.3 percent with suppression
helicopters and 9.7 percent with amphibious planes. In 1.7 percent coordination
airships were used and in these cases, in 38 fires in 1998, in 77 in 1999 and ion 132
fires in the year 2,000 at least five more airships intervened in fire-fighting.
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