Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Comparative Analysis Between the Forest
Fire Prevention Systems in Sicily (Italy) and
Andalusia (Spain) 1
Clara Quesada Fernández 2
Abstract
The Sicilian Region, as it is located in the south of Italy, shares common geographical and
climatic characteristics with Andalusia, as well as those concerning vegetation. To these
features we may also add the high demographic pressure Sicily is subjected to, making it a
region susceptible and vulnerable to attack by forest fires. Moreover, the 2003 Regional Plan
for Sicily actually corresponds to 1994. Since then a number of laws have been passed in
which the Italian regions have been required to draft and/or update their forest fire forecast,
prevention and active fire-fighting plans, such as the Regional Sicilian Law 16/96, the Italian
national law 353/2000 and the European Regulation of 1997. Due to problems of a
bureaucratic, administrative, economic and political nature these directives have not yet been
implemented. In accordance with this legislation, a new Regional Sicilian Plan is being
drafted but the budget estimates for each of the sections of forecasting, prevention and firefighting, extinction and supplementary action have still to be designated.
In order to undertake the comparative analysis, we have used the INFOCA Regional Plan and
the organisational models currently existing in Andalusia, a region which is a pioneer in forest
fire-fighting, as these elements are reasonably effective as regards planning the strategy for
effective fire prevention management.
We should underline that there is great difficulty in collecting certain key information on
forest fires but that there is a growing awareness on the part of the Sicilian government, which
is currently updating its data bases and setting up the Special Services Offices. Nevertheless,
the effort made to date is still insufficient and more investment in economic, material and
human resources is needed. The comparative analysis which we have undertaken may
therefore help to establish a common direction for work, improving both our forest firefighting systems.
Introduction
The profound climatic change recorded in Italy in recent years has led to a reduction
in humidity which has increased the exposure of Italian forestland to the work of
arsonists, a problem which is accentuated by the spread of fires which, as can be seen
by the statistics, are largely the fault of man. Thus, we should always be conscious of
the context in which these occur, when analysing the regions under study.
1
An abbreviated version of this paper was presented at the second international symposium on fire
economics, planning and policy: a global view, 19–22 April, 2004, Córdoba, Spain.
2
Forestry engineer, University of Córdoba (Spain).
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GENERAL TECHNICAL REPORT PSW-GTR-208
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
Comparisons made
In a regional context, Italy is under huge demographic pressure, a fact accentuated in
some of the southern regions of Italy, such as the case of Sicily (tables 1 and 2).
Region
Regional
surface
area (ha)
Woodland Woodland Populatio
surface
rate (%)
n (Inhab)
area (ha)
Sicily
Southern
Italy
Andalusia
2,570,856
10,781,40
5
8,759,968
30,127,76
1
50,949,13
9
266,400
10.4
1,819,443 16.9
Italy
Spain
4,325,378 49,4
8,675,100 28.8
25,984,06 51
1
Populatio
n density
(inhab/km
2
)
5,108,067 197.8
19,337,78 179.3
5
7,236,459 83
57,563,35 191
4
39,975,47 78.5
9
Woodland
surface
area per
inhabitant
0.05
0.095
0.6
0.15
0.65
Table 1-- General data on the southern regions of Italy, Andalusia, Italy and Spain.
The administrative structure in Andalusia and Sicily is similar, with regions
divided into provinces and municipalities. The areas comprise 8 and 9 provinces and
770 and 390 municipalities respectively.
Characteristic
Woodland surface area (Ha)
Conifers
Greenwoods
High level woodland
Mid-level woodland
Low-level woodland
Woodland rate (%)
Woodland surface area per inhabitant (Ha)
Andalusia
4,325,378
611,551
530,136
1,141,687
42,696
37,592
49.4
0.6
Sicily
266,400
45,293
111,259.44
156,543.44
63,409.72
63,126.84
10.4
0.05
Table 2-- Main woodland characteristics in the regions of Sicily and Andalusia.
A striking fact in the region of Sicily is the non-existence of any differentiation
between fires of different sizes, with all incidents appearing as “forest fire”, with no
reference to the surface area affected, whether or not this was an abortive fire, or a
major forest fire. This makes studies and comparisons difficult. The differences in
statistics enable a more exhaustive study to be made of the effectiveness of the Fire
prevention plan “table 3”.
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Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
Characteristic
Abortive fires (< 1 ha)
Fires (> 1 ha)
Percentage of fires nationally 93-02 (%)
Hectares burnt 93-02
Percentage of hectares burnt nationally (%)
Andalusia
6,321
10,944
5.74
105,928.96
7.7
Affected woodland surface area (Ha)
44,616 Ha
Affected woodland surface area (%)
Mean ha/fire 93-02
42.12
9.68
Sicily
7,460
5.40
166,800.3
11.65
71,957.88
Ha
43.14
21.52
Table 3-- Data and statistics on forest fires in the Sicilian Region and Andalusia.
In the period 1993-2002 the average surface area per fire in the Sicilian region
was 21.52 ha, the main reason for this comparative study being carried out (table 3).
Moreover, it should be borne in mind that in both regions there is major legislation
on forest fire prevention and fire-fighting: in Andalusia, law 5/1999 and in Sicily,
Law 353/2000.
Another fact to be underlined is the existence of Forestry Defence Associations
(ADFs in Spanish) in Andalusia. These were set up within the INFOCA Plan,
amongst forestry land owners, both public and private, who joined forces to protect
the natural heritage of forestry, with the common aims of conservation. In the Sicilian
Region we do not find similar groupings and the existing agricultural associations do
not concern themselves too much with forestry concerns. Similarly, the organisation
of the Sicilian region does not cover official protocols for collaboration over forest
fire-fighting between the different provinces which make up the region - a normal
procedure at both provincial and municipal level in the self-governing region
(Autonomous Community) of Andalusia.
It is important to emphasize that the economic data for forest fire prevention
campaigns for 2003 and earlier are not available for consultation. In the case of data
for 2004, the Sicilian region is finalising the drafting of budget items to be assigned
to each of the sections in the future Fire Prevention Plan.
The Fire Prevention Plans in Andalusia and the Sicilian Region have very
different philosophies and organisations. The INFOCA plan centres more on
prevention and the Sicilian plan on extinction, although the same objectives of
improving forest fire-fighting are met (table 4). This has been defined by the
importance the respective communities attribute to the rural environment and is
observed in Andalusia through the Autonomous Community Forestry Plan, one of the
first to be passed, and the great amount of legislation existing on fire prevention and
extinction in that region. On Sicily’s part, this general legislation on forestry is
insignificant.
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GENERAL TECHNICAL REPORT PSW-GTR-208
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
Characteristic
Activation of
Fire Prevention
Plan
Scope of Fire
Prevention Plan
Philosophy of
Plan
Importance of
prevention
System used
Andalusia
Sicily
All year round
Only during risk period
Regional
Regional
To deal with all forest fires
and consequent emergencies
Fundamental, assigning
major resources
To optimise resources in order to
avoid risks
Fundamental, but sufficient
resources not provided
Use of Civil Protection Services,
assisted by volunteers and hired
stand-by crew
Stand-by crew
Table 4--Philosophy and organisational structures of the INFOCA Plan and the
Sicilian Plan.
The INFOCA Plan is strictly forestry based, seeking a decrease in fire sites, and
therefore attributes major importance to prevention through preventive silviculture,
public awareness and the use of new technologies and working methods in the rural
environment. The plan is considered by forest fire-fighting professionals as one of the
best available plans in the Spanish state over all. The Sicilian Plan is based on the
philosophy that fire is inevitable and seeks the least possible damage from this, with
few preventive measures for silviculture, due to the fact that this is conceived from
the viewpoint of the emergency services and not the forestry environment.
The INFOCA Plan involves a change in organisation depending on the
Provincial Operating Division. The CEDEFOs only remain open when there are
stand-by crew in the period devoted to extinction tasks. Changes in the uniformity of
procedures and organisation may cause small problems of coordination when
resources are moved from one province to another. In addition, according to the
INFOCA Plan, some functions of the CEDEFO, which are fundamental for
improving the level of prevention amongst the inhabitants of rural areas, should be
undertaken outside the period of maximum risk, when these are in fact closed. For
this reason, in most cases these tasks are not undertaken, as no fire-fighters remain at
the CEDEFOs outside the period of maximum danger. It would therefore be
recommendable to maintain a minimum structure all year round with a number of
specialist stand-by crew. This would also lead to greater professionalisation. As an
advantage it would also reduce a certain lack of motivation observed amongst the
hired staff, which affects the work done during the season, since many of these
employees use working days as time off and do not wish to do training courses or
equipment maintenance.
As regards the resources and funds assigned, in some cases deficient
maintenance of equipment used for forest fire-fighting has a close relation with the
use of the CEDEFOs, closed down for part of the year, without any monitoring of
material or maintenance. This is left for the start of the next season and deficiencies
are carried over during the vital period of total availability of resources.
With regard to the Sicilian Plan, intensive use of Civil Protection volunteers is
made for all tasks, since these volunteers are present in surveillance and extinction.
The problem lies in the fact that many of them do not have the necessary physical or
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Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
mental capacities for these posts and lack technical, theoretical and practical
knowledge regarding behaviour in a forest fire. Another interesting feature is the
almost exclusive use of water-based fire-fighting systems due to the provision of selfpumping vehicles and limited experience of fire fighters’ forest fire-fighting systems.
This dictates to a large extent the procedures to be used in fire-fighting.
The definitive characteristic of both Plans is the existence of one single
controller. This corresponds to the government department in charge of forestry and
the environment, based in the Andalusia government’s Department of the
Environment and the Sicilian Regional authority. The Plans are the responsibility of
the Andalusia government’s Counsellor for the Environment and the President of the
Sicilian region. Under them are the respective regions and regional structures
including similar organisational and planning structures (table 5)..
Comparison made
Structure at regional
level
Provincial structure
Regional structure
INFOCA Plan
COR with an Advisory Committee
and an Information Office
Network of 8 COPs, with an
Advisory Committee in each one.
21 regional units, each with a
CEDEFO
SICILY Plan
COR
Network of 9
COP
-
Table 5-- Existing power structure.
Fire-fighting resources are automatically dispatched from the CEDEFO in
Andalusia, however in Sicily this situation is only possible in very exceptional cases,
with strictly special bureaucratic authorisation from the Airborne Centres, slowing
down the process considerably (Table 6). This highlights the INFOCA Plan’s
theoretically greater speed in arriving at the fire, as well as its control and total
extinction, preventing propagation.
Comparison made
INFOCA Plan
Responsibility for extinction
on woodland
The Forestry Dept. is in
charge of technically
directing extinction.
Automatic dispatch of
airborne resources
Organisation of first attack
Advance Command Point
Directorate
Structure of the Advance
Command Point
Fire structure
Support infrastructure to
Advance Command Point
SICILY Plan
The technical direction of
extinction is under the Dept. of
Agriculture and Woodland
(Forestry Dept.)
Yes, at the CEDEFO.
No, only in very exceptional cases
Forestry department
Forestry Dept.
COP Director
Planning, operations and
logistics sections
SMEIF action groups
Advanced Command Point does
not exist as a definition
UMMT and UNASIF
Table 6--Action, responsibilities for extinction and organisation.
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GENERAL TECHNICAL REPORT PSW-GTR-208
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
As regards operating capacity, the largest number of units are concentrated
within the high
risk
period. The Analysis
SicilianBetween
RegionFiredoes
not differentiate
between
Session
5A—Comparative
Prevention
Systems—Quesada
Fernández
different risk periods, so that it only assigns resources during the summer months
when it is active, leaving other periods unattended (table 7).
mental capacities for these posts and lack technical, theoretical and practical
knowledge regarding behaviour in a forest fire. Another interesting feature is the
Comparison
made use of water-based fire-fighting
INFOCA
Plan due toSICILY
Plan of selfalmost exclusive
systems
the provision
1
July
30
Sept.
Full
team
and
pumping
High
risk vehicles and limited experience of fire fighters’ forest fire-fighting systems.
team and
resources
resources
This dictates Full
to a large
extent
the procedures
to be used in fire-fighting.
1st May - 30 June
Some
specialist
The definitive
characteristic
of both Plans
is the existence
of -one single
15th June
1st Oct –31st
Oct
stand-by
crews andin charge of forestry and
Average
controller. This
corresponds
the government
department
15th Oct.
Some
specialist to
stand-by
airbornegovernment’s
resources
risk
the environment,
based
in the Andalusia
Department of the
crews and
airborne
remain.
Environmentresources
and the Sicilian
remain Regional authority. The Plans are the responsibility of
the Andalusia1st
government’s
Counsellor for the Environment and the President of the
Nov-30th April
There are regions
no units and regional structures
Low
risk region. Under them are the respective
Sicilian
There are no units
including similar organisational and planning structures (table 5)..
Summer
Period active
All year.
months
Comparison made
INFOCA Plan
SICILY Plan
Structure at regional
COR with an Advisory Committee
COR
level
and an Information Office
of 8 COPs,
an
Network
of forest
9
Each region has a number Network
of infrastructures
andwith
resources
for the
tasks of
Provincial structure
Advisory
Committee
in each
one.TheCOP
fire detection, surveillance and
extinction
in its
areas.
assignation of
21 similar
regionalinunits,
eachterms
with a(table 8). The numerical
infrastructure resources is fairly
general
Regional structure
CEDEFO
differences in absolute and relative
terms are explained by the different conception of
the two Plans which assign their resources differently.
Table 7--Comparison of resources by danger period.
Table 5-- Existing power structure.
460
Fire-fighting resources are automatically dispatched from the CEDEFO in
Andalusia, however
in Sicily this
situation
is only possible
in very
Comparison
made
INFOCA
Plan
SICILY
Plan exceptional cases,
withBrigade
strictlyHQ
special bureaucratic
Fire
- authorisation from -the Airborne Centres, slowing
down theBases
process considerably
the INFOCA Plan’s
Helicopter
4 (Table 6). This highlights
6 + 2 support
theoretically
greater
speed
in
arriving
at
the
fire,
as
well
as
its control and total
Main runways own planes
8
extinction,
preventing
Own
secondary
runwayspropagation.
12
Watchtowers
231
250
345 mobile patrol
86, one per Forestry
Mobile
patrolsmade
Comparison
INFOCA Plan
SICILY Plan
members
detachment
The technical direction of
Own medical teams
17
The Forestry Dept. is in
Responsibility
extinction is under the Dept. of
Forestry
crews for extinction charge
267 of technically on
woodland
Agriculture and Woodland
Heli-transportable crews
4
directing
extinction. Extinction Vehicles
96
81 (Forestry Dept.)
Automatic
dispatch
of
Transport
Planes
on land
6
3
Yes, at the CEDEFO.
No, only in very exceptional cases
airborne resources
Amphibious
Planes
2
1
Organisation Planes
of first attack
Forestry Dept.
Coordination
3Forestry department 1
Advance
Command
Point
Fire-fighting helicopters
2
6
COP
Director
Directorate
Transport
Helicopters
1
2
Structureand
of the
Advance
Planning, operations and
Transport
fire-fighting
Advanced Command Point does
18
6
Command Point
logistics
sections
helicopters
not exist as a definition
Fire structure
SMEIF action groups
Support
infrastructure
to detection, surveillance and fire-fighting resources.
Table
8--Infrastructures
and
UMMT and UNASIF
Advance Command Point
Table 6--Action, responsibilities for
extinction
and organisation.
USDA
Forest Service
Gen. Tech. Rep. PSW-GTR-xxx. xxxx.
Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
Nevertheless it can be seen that the Sicilian Plan has some shortfalls in its
extinction structure: it does not have runways exclusively for Fire Prevention Plan
units, most of them having to depend principally on those granted by the official
bodies of conventional airports, thus considerably slowing down the operations.
Moreover, the non-existence of helicopter-transportable fire-fighters and highly
specialised squads means these cannot be used in highly labour-intensive tasks.
The effectiveness of a Fire Prevention Plan is measured by the way in which the
available resources - mainly economic - are managed, whether many or few, and the
results obtained. Economic resources assigned to the Plans are insufficient for
existing requirements in both cases. In the case of the Sicilian Region, these
resources are totally insufficient, added to the fact that assignation of all available
funds has not yet been determined (Table 9).
Element
Euros allotted to regional plan
Euros allotted to prevention
Euros allotted to extinction
Euros allotted to restoration
Andalusia
104 million
57.2 million
41.3 million
5.2 million
Sicily
3.5 million
-
Table 9--Available economic resources in the Sicilian Region and Andalusia.
In the case of Andalusia, available resources are reasonably sufficient for the
tasks undertaken, however many aspects of their management could be improved in
order to optimise final results. Thus, the result obtained is relatively optimistic,
bearing in mind the above premises.
The Sicilian region does not provide a great deal of information on the resources
it has, so that the resulting effectiveness cannot be analysed in sufficient depth.
Information provided refers to fairly scantly fire-fighting resources which prove
totally insufficient for the needs the Fire Prevention Plan aims to cover. These needs,
at the end of the day, are not met or are met insufficiently, placing a greater burden
upon the already deteriorated and weakened forestry of Sicily.
Future improvements and recommendations
In order to achieve the objectives of improving prevention, protection and the active
forest fire-fighting system in Sicily, a number of measures must be taken, taking
Andalusia as an example, with future action which is either already going ahead in
the Sicilian fire prevention organisation, or which should be considered.
In the Plan’s organisational structure, it must set down procedures for action by
teams and services which come under the Sicilian region and by those assigned by
other government departments and official bodies. For this purpose independent
Forest Fire Investigation Brigades will be set up which shall determine and
investigate the cause of all the fires in the region over the course of the year, given
the very high degree of actionable fires.
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GENERAL TECHNICAL REPORT PSW-GTR-208
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
According to the Plan’s operations, the human and material resources envisaged
will gradually come into service in a staggered manner, depending on the risk
indicated by weather conditions. These resources should be fully operational during
the period from 1st June to 15th October, save cases of force majeure, with a skeleton
staff and minimum resources remaining available till the end of the season. If
applicable, the Advance Command Post (PAIF in Spanish), the stand-by areas and
the base camp may be defined and created to direct and monitor the suppression
work.
The greater or lesser density of surveillance resources for each zone is directly
related to the number of fires, the information provided by the statistics, and the
value of the area to be protected. From the distribution of the quality-risk maps on
forest systems and considering the current resources the region has available, a
minimum provision of resources is proposed which provides total protection of
greater quality systems and minimum protection for lower quality areas, as well as
capability in the case of fires of average proportions.
In order to improve on shortfalls, a specific municipal register of burnt zones
was produced, as required by the Italian Law 353/2000 - the only measure to stop
later speculations after many fires. Correct and preventive information campaigns,
with greater awareness and sensitisation, also help to prevent anthropic fires: “Those
who love, do not burn” is a call to ignite passion and extinguish indifference.
Measures which give incentive to the right behaviour, with tax deductions for
landowners who show concern for their woodland, continue the initiatives of 2002 in
the Italian financial law. This is of notable importance as 60% of the national
woodland surface area is in private hands.
A “permanent structure” will be set up, adequately provided with human,
structural and financial resources, which will independently draw up the planning
document and proceed to the Plan’s annual review; map-making of the areas affected
by fire; acquisition of any element in digital format involved in drafting the Plan; and
the verification of action taken to achieve the envisaged objectives. This also
involves taking specific political initiatives to reorganise, improve, potentiate and
adapt forest-fire prevention measures. Similarly, the creation and strengthening of
Forestry Defence Associations amongst forestry land owners will give incentive to
the care of potentially endangered areas in the Sicilian region.
The main prevention measure, as well as preventive silviculture, will be to
continue collaboration with the Forecasting Services for danger of forest fires” in
order to coordinate and include resources which are common to other sectors of
public administration
In the active fight, it is recommended that the radio network and anti-fire
resources be revised and modernised, and the aerial tele-detection system be
activated, extending this to areas of particular environmental and natural interest and
to areas of greater fire risk, building upon the growing attention paid by regional
policy to defence and conservation of the area, and civil protection and restructuring
of the regional administration itself. It is proposed that regional and local anti-fire
systems be strengthened, creating their own regional air-borne forest fire protection
service, since the suppression of forest fires is done at present with helicopters rented
by the Regional Forestry Administration. Special attention should also be devoted to
the airborne resources’ early warning system, coordinated by the Civil Protection
Dept.
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Proceedings of the Second International Symposium on Fire Economics, Planning, and Policy: A Global View
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
The action and participation of the municipalities in the fight against forest fires
formulates its own anti-forest fire policy, an integral part of a policy for land
management and reclassification. Within this sphere is found specifically designated
action, such as compiling regional information essential for the implementation of the
remaining action, and the existence of coordination structures with the other bodies
within the anti-forest fire system, in order to manage regional resources with the
maximum efficiency and effectiveness.
Administration and logistics assigned for this purpose provide functionality for
the system, reducing the occurrence of contretemps in a possible emergency
situation. For this purpose, the efficiency and effectiveness of the system is evaluated
through an audit to provide improvements, render accounts to authorities, assign
merit and responsibility, and compare the mechanisms with those adopted in similar
situations.
Final Consideration
Qualifications and professionalisation for all personnel in the forest fire prevention
service requires to be given an impulse through training courses for both hired
personnel and civil servants, as well as voluntary staff, placing special emphasis on
the safety of personnel and self-protection in fire suppression tasks. Moreover, it is
recommended that wherever possible, activities which include prevention should be
promoted, since, apart from reducing the number and effects of the fires, in parallel,
effort and human risk may be decreased and contribute positively to the local
economy and social conditions.
Any task which supports efficient and speedy decision-making with the use and
application of computing and the SIGs should be systematised, since these are
essential tools in achieving increasingly effective results, and moreover intensifying
collaboration with Italian police surveillance (Corpo Forestale della Regione
Siciliana, Carabinieri, Guardia di Finanza).
References
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Sicily. ISTAT-Ufficio Regionale per la Sicily. Progetto “Determinazione di
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Arrigo, M. 2002. Nuovo programma di vigilanza finalizzato alla prevenzione
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GENERAL TECHNICAL REPORT PSW-GTR-208
Session 5A—Comparative Analysis Between Fire Prevention Systems—Quesada Fernández
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