Running head: DEVELOPMENT OF A WILDLAND URBAN INTERFACE PROGRAM

Transcription

1 Wildland Urban Interface Plan 1 Running head: DEVELOPMENT OF A WILDLAND URBAN INTERFACE PROGRAM Development of a Wildland Urban Interface Mitigation Program for the Rapid City Fire Department Mike Maltaverne Rapid City Fire Department, Rapid City, South Dakota

2 Wildland Urban Interface Plan 2 CERTIFICATION STATEMENT I herby certify that this paper constitutes my own product, that where the language of others is set forth, quotation marks so indicate, and the appropriate credit is given where I have used the language, ideas, expressions, or writings of others. Signed:

3 Wildland Urban Interface Plan 3 Abstract The Rapid City Fire Department has determined that the threat exists for a catastrophic wildfire in the wildland urban interface area that could cause significant loss of life, damage to property and the environment. The problem is the Rapid City Fire Department does not have a program to reduce the number or severity of wildland fires in the urban interface areas of Rapid City. The purpose was to identify the steps that can be taken by the Rapid City Fire Department to reduce the potential for loss of life, property and damage to the environment due to wildland fires in the wildland urban interface. A descriptive research methodology was used to identify methods to reduce the number and severity of wildfires in the wildland urban interface areas of Rapid City. The research questions to be answered were: 1) What techniques can be utilized to reduce the severity of wildland fires in Rapid City? 2) What methods can be used to reduce the number of wildfires in Rapid City? 3) What local resources can be assembled in an emergency to contain the spread of wildfire? 4) What incentives exist for homeowners to prepare their property from the threat of wildfire? A literature review was performed using publications from the Learning Resource Center at the National Fire Academy, the Rapid City Public Library and the Rapid City Fire Department Library. Other sources for the review were wide variety of internet or web-based resources. Personal interviews and correspondents were conducted with subject experts in wildland urban interface fires and mitigation practices as well as other city departments. The results of this research project identified a number of best practices and recommendations for wildfire mitigation programs by other communities, local, state and federal

4 Wildland Urban Interface Plan 4 agencies such as Spearfish, South Dakota, the State of South Dakota, Federal Emergency Management Agency, United States Fire Administration, United States Forest Service and the National Park Service. The recommendations were for the Rapid City Fire Department to utilize what local, state and federal resources that already exist and develop a wildfire mitigation program dealing with wildfire mitigation practices such as prevention, public education, reducing structure ignitability, creating defensible, wildland urban interface code adoption, private homeowner incentives and fire suppression strategies. A mitigation program should be achievable, sustainable and robust for true success.

5 Wildland Urban Interface Plan 5 Table of Contents Abstract 3 Table of Contents.5 Introduction..6 Background and Significance..7 Literature Review...10 Procedures..18 Results 20 Discussion..22 Recommendations.25 References.27 Appendixes Appendix A: Rapid City Evergreen Forest Coverage Map...29 Appendix B: Rob Powell Interview..30 Appendix C: Wildland Urban Interface Mitigation Survey..34

6 Wildland Urban Interface Plan 6 Development of a Wildland Urban Interface Mitigation Plan for the Rapid City Fire Department Introduction Rapid City was established on the eastern slope of the Black Hills of western South Dakota. Settlers originally came to the Black Hills in search of gold in the high country. Gold mines took over the landscape in communities such as Deadwood, Lead and Hill City. As the mining camps flourished, logistical support was needed for these communities. Rapid City was the likely spot just out of the rugged terrain of the Black Hills yet close enough to be readily available by horse and wagons. Rapid City was situated along Rapid Creek and in the foothills to be accessible by those from the mining camps while in the lower elevations where hay could be harvested for the horses and mules that were used in the mining camps for work. Rapid City was referred to as the Hay Camp. This close proximity to the Black Hills has caused a significant threat to Rapid City of a wildfire in the areas where human development butts up to the natural vegetation of the hillside. This area or zone is referred to as the wildland urban interface or WUI. In recent years, the western United States have been impacted by a large number of wildfires that have taken human lives, destroyed thousands of homes, caused catastrophic damage to property and consumed millions of acres. In the last 10 years, the Black Hills of western South Dakota have experienced a number of these catastrophic wildfires. These fires have burned in every area of the Black Hills but have not significantly threatened Rapid City since the Westberry Trails Fire of However, due to the proximity of Rapid City to the Black Hills National Forest, the community is at risk to a catastrophic WUI fire that could threaten lives, property, human development, critical infrastructure and esthetics of the area. The

7 Wildland Urban Interface Plan 7 Rapid City Fire Department (RCFD) has deemed the threat of a wildfire one of the most significant threats to the community. The problem is the RCFD responds to a number of wildland fires in the urban interface area of Rapid City. These fires present a significant risk of loss of life, property and damage to the environment. The RCFD does not have a plan to reduce the number or severity of wildland fires in the urban interface areas of Rapid City. The purpose of this applied research project was to identify the steps that can be taken by the RCFD to reduce the potential risk associated with the loss of life, property and damage to the environment due to wildland fires in the wildland urban interface (WUI) of Rapid City. This project utilized a descriptive research methodology to address the risk to Rapid City associated with wildfire in the urban interface. The research answered the following questions: 1) What techniques can be utilized to reduce the severity of wildland fires in Rapid City? 2) What methods can be used to reduce the number of wildfires in Rapid City? 3) What local resources can be assembled in an emergency to contain the spread of wildfire? 4) What incentives exist for homeowners to prepare their property from the threat of wildfire? Background and Significance Rapid City is the second largest municipality in the State of South Dakota and the largest in the western half of the State. Since 1886, the RCFD has served the city of Rapid City with the delivery of emergency and non-emergency response as well as providing quality customer service to the citizens and visitors to Rapid City and surrounding communities. The RCFD serves the community out of 7 fire stations strategically placed throughout the city. The fire department staffs 4 advanced life support ambulances, 5 fire engines, 1 quint, 1 truck company

8 Wildland Urban Interface Plan 8 and 1 battalion chief. Each fire station is complimented with a wildland firefighting vehicle in the form of a type 6 or type 3 engine. All uniformed firefighters are cross trained in the delivery of EMS, structural firefighting, hazardous materials operations, aircraft rescue and firefighting, technical rescue and wildland firefighting. These services are provided to the corporate limits of Rapid City as well as much of western South Dakota. (City of Rapid City, Fire Department, 2010). Rapid City is a city of approximately 70,000 residents that is nestled in the foothills of the Black Hills of South Dakota. The Black Hills National Forest is a small extension of the Rocky Mountains and is a mature natural ponderosa pine forest that has been heavily developed, roaded and populated for one of the United States Forest Service s national forests. In recent past, the city of Rapid City has not experienced a significant loss of life or structures to a WUI fire. However, the city has a significant number of wildland fires each year that are successfully suppressed by the RCFD before they get large and cause large scale damage to the environment, forms of human development, structures or infrastructure. Through an analysis of potential natural caused disasters or risks, the RCFD has deemed that the potential for a catastrophic WUI fire exists and has increased due to the encroachment of the city into the natural vegetated or forested areas of the Black Hills. (Appendix A). The problem is that the RCFD responds to a number of fires in the urban interface. These fires present a significant risk of loss of life, property and damage to the environment. The RCFD does not have a program to reduce the number or severity of wildland fires in the urban interface. This problem is expected to continue to increase with the growth of the city. Since 1990, the City of Rapid City has experienced significant growth. From 1990 to 2000, the City s population grew by 8.1% and is expected to see a larger number from data collected from 2000 through (City-Data.com,

9 Wildland Urban Interface Plan ). This growth translated into a larger number of homes being built in the WUI areas of Rapid City. The impact of the growth of the city into the urban interface areas is the ongoing and increasing threat of a catastrophic wildfire that could adversely affect the community by potential loss of life, loss of homes, damage to the environment or beauty of the area, damage to critical infrastructure and the economic impact associated with these potential losses. To assure that the City of Rapid City and the RCFD is prepared for a fire of this magnitude, the fire department must identify the steps that can be taken to reduce the potential for loss of life, property and damage to the environment due to wildland fires in the WUI. Identifying and developing a wildland urban interface mitigation program for the RCFD is directly related to the terminal objectives 2 and 3 of the Assessing Community Risk and Intervention, Program Design and Evaluation segments of the National Fire Academy s Executive Analysis of Community Risk Reduction course. These objectives stated that The student will: 1) Given a community all-hazards risk analysis model, be able to develop riskreduction objectives. 2) Design a draft plan for a local risk-reduction initiative. (National Fire Academy, 2009, SM 2-1, 3-1). Through a wildland urban interface mitigation program, the fire department will be able to develop risk-reduction objectives and develop a program to reduce the risk to the community from a WUI fire. This research topic also relates to the following United States Fire Administration Strategic Plan Goal #1: Reduce risk at the local level through prevention and mitigation. (USFA.dhs.gov, 2010). Developing a wildland urban interface mitigation plan for Rapid City will assure that the RCFD is accomplishing this important goal of the United States Fire Administration.

10 Wildland Urban Interface Plan 10 The research questions of this project were to determine: 1) What techniques can be utilized to reduce the severity of wildland fires in Rapid City? 2) What methods can be used to reduce the number of wildfires in Rapid City? 3) What local resources can be assembled in an emergency to contain the spread of wildfire? 4) What incentives exist for homeowners to prepare their property from the threat of wildfire? The purpose of this research was to identify the steps that can be taken by the RCFD to reduce the potential for loss of life, property and damage to the environment due to wildland fires in the wildland urban interface. Literature Review It has been identified that over a 100 years of aggressive fire suppression in the western United States has contributed to a buildup of vegetation or fuels in forested areas. This buildup is contributing to hotter, more devastating wildfires. The last decade has produced the most extreme fire conditions and acres burned in the United States. Those fire departments and fire districts that are affected by wildfire have taken the risk serious and boosted training of firefighters in the off seasons for the upcoming fire seasons. When wildfire strikes the local fire departments are expected to know how to deal with these incidents without hesitation. However, the downturn in the economy has forced reduced staffing, delayed equipment purchases and decreased resources all together. Responsible fire service leaders are looking to partner with other local, state and federal agencies that deal with wildfires on a full time basis. The expectation is that leaders must understand the management of wildfires in the urban interface, how to work with other agencies while exercising mutual aid agreements, utilize effective interoperable communications with other agencies and deliver worthwhile public education tools within their respective jurisdictions. As resources become more difficult to secure and the public s expectations of fire departments soar, the most efficient approach may require a more

11 Wildland Urban Interface Plan 11 strategic approach to wildfire mitigation employing multiple facets of a WUI mitigation program. In the development of a wildland urban interface mitigation program, a fire department must first look at proactive methods to reduce the overall number of wildfires in their jurisdiction. If the risk was eliminated, the preparedness, response and mitigation of such a risk would not be as necessary. Prevention is the first element that needs to be assessed. Of the wildfire occurrences in the Black Hills and Rapid City area, it is important to know that 35% of wildfires from the years of 1977 to 2000 were lightning caused. (South Dakota Hazard Mitigation Plan, p. 3-39, 2008). A number of fires will occur naturally and cannot be prevented. This fact makes prevention a less effective strategy than for structure fires. To address fires that are human caused public education is the most effective method of reducing the overall number of fires. With local, state and federal cooperation, the Spearfish, South Dakota area has actively participated in wildfire mitigation. (USFS, 2003). A group of scientists funded by the National Fire Plan reviewed the efforts underway in the Spearfish area to mitigate hazards associated with fires in the WUI. Education was identified as one of the most important methods for wildfire preparedness in the WUI areas around Spearfish. Areas of the community that were targeted were schools, individual residents, neighborhood clubs and civic groups. Brochures were handed out with preparedness and prevention topics. The local media was used to deliver preparedness messages and demonstrations of fuels reduction were given. A prescribed fire demonstration area was even utilized to educate residents about the positive effects controlled fires can have on the ecosystem.

12 Wildland Urban Interface Plan 12 If fire prevention and public education measures fail and efforts to combat WUI fires are to be successful, the fire service must address broad issues and improve in three areas: 1) Creating fire adaptive communities where structures can withstand the threat of an approaching wildfire. 2) Management of wildland fuels by actively treating the areas of overgrown and flammable vegetation within the interface area adjacent to communities 3) Improve fire suppression efforts by using the latest technology, best safe practices and fire suppression enhancements while remaining fiscally responsible (Roper, B, 2010). These three categories can further be divided to specifically address mitigation efforts that can be targeted within a program. In the wake of the 2000 fire season, the United States Forest Service developed the United States National Fire Plan (USFS, 2000). Five areas were outlined within the plan: firefighting or suppression, rehabilitation, hazardous fuels reduction or mitigation, community assistance and accountability. The National Fire Plan directly addresses aspects of the need for a wildland urban mitigation program for communities such as Rapid City. Techniques that could reduce the severity of urban interface fires can be divided into several areas. One technique would be to reduce the possibility of a structure igniting due to an approaching wildfire or reduce its ignitability. The Federal Emergency Management Agency (FEMA, 2008) has addressed this problem with recommendations that include wise selection of areas that homes are built, the creation of defensible space around the structure, the addition of infrastructure like hydrants, hard surface roads that are wide enough for evacuation and fire apparatus, and more specifically, suggestions that deal with the construction of the home itself to include fire resistive building materials for all portions of the structure. These recommendations address new construction as well as existing ones. The recommendations included everything from roofing materials, siding, decking and the foundation.

13 Wildland Urban Interface Plan 13 In addition to the preparation of the structure to reduce its ignitability, the property or landscape around the structure must be considered. A number of methods to reduce the severity of the fire can be utilized. The vegetation or fuels can be treated to reduce the spread or intensity of the fire in the WUI. According to the National Park Service (NPS, 2010) fuel reduction or treatment has been a proven method for reducing the severity of wildfires. The idea behind treatment of the fuels is to reduce the overall amount of the fuel so the fire burns with less intensity and can be easily suppressed. This fuel reduction or treatment typically refers to the reduction or removal of surface fuels and ladder fuels and can involve the entire removal of standing trees. Methods of fuels treatment can include thinning of the trees, removal of brush, cutting branches and can be done mechanically with chainsaws or manually with hand tools. Once the fuel is reorganized, it can be piled and burned, removed or chipped. Another more technical approach is the use of prescribed fire or intentionally set fires to reduce the amount of fuel buildup. Coordination, collaboration and partnerships among individual property owners, agencies and jurisdictions are a key to successful mitigation of hazardous fuels in the WUI. Homeowners must understand their role in the mitigation program for wildfires in the urban interface. (McCaffery, 2004). Homeowners must determine for themselves the benefits of fuels reduction and risk mitigation. The cost can be monetary, that of their time and potentially altering the appearance of their landscape. McCaffrey stated that incentives exist, such as financial assistance, may change how homeowners view mitigation practices in the WUI. Assistance could be offered in the form of chipping of woody materials and the hauling of materials from the homeowner s property. The fire service is limited in its capabilities to defend every structure that is built in the WUI as a fast moving fire front approaches a neighborhood. Some degree of responsibility must

14 Wildland Urban Interface Plan 14 be placed on the homeowner to prepare their property from an approaching wildfire. In recent years incentives have been developed for property owners to manage the fuels on their respective property and take an active part in the preparedness aspect. In some instances some homeowners will take advantage of incentives based on perceived importance of mitigation efforts and others will not. What may occur in neighborhoods is a checker board effect where there is no consistency from one property to the next. In the event of a large WUI fire, structures become fuel themselves that feed the fire. Without entire neighborhoods conducting mitigation practices, the fire may still be able to consume entire neighborhoods or clusters of structures. In terms of using incentives, the best case would be entire communities or neighborhoods would partner or collaborate in seeking incentives for fuels reduction and mitigation practices. More attention may be given by state and federal programs targeting WUI projects to those entire communities. In 2003, the Healthy Forest Restoration Act was enacted and entire communities were targeted to develop Community Wildfire Protection Plans (CWPP). Federal agencies like the USFS and the Bureau of Land Management (BLM) use these completed community plans to prioritize incentives offered for forest management and fuels reduction projects. Issues such as hazard mitigation, response, preparedness and structure protection are targeted. There are currently communities in the Black Hills that have received assistance from these agencies. (South Dakota Hazard Mitigation Plan, p. 4-8, 2008). South Dakota s Hazard Mitigation Plan addresses the need for creating defensible space between structures that lie adjacent to forested areas or the WUI. Potential funding sources that have been identified by the state are the South Dakota Department of Agriculture, the USFS and

15 Wildland Urban Interface Plan 15 the South Dakota Game, Fish and Parks. Assistance from these agencies specifically targets private citizens and land owners and offers incentives and assistance for wildfire mitigation efforts. Another incentive for homeowners is their individual insurance agencies. Insurance agencies that deal with clients in the more fire prone western states offer different incentives to deal with preparedness measures that are taken by individuals. It is recommended that homeowners call their insurance agent, discuss the issue and ask for a home insurance assessment of the property. In October of 2007, the California Department of Insurance and the California Department of Forestry and Fire Protection (CAL FIRE) entered into a memorandum of understanding (MOU) that both agencies would work collectively in dealing with California s wildfire problem. Both agencies agreed that preparedness, public education and mitigation efforts were worthwhile. No specific incentives for individual property owners were listed. This is a step in the right direction to have both agencies looking into issues together. (California MOU, 2007). As fire chief, this researcher has the ability to offer local incentives offered by the City of Rapid City that could include free hauling of brush and vegetation as it is removed, free dumping at the city s landfill, a WUI hazards assessment from the Rapid City Fire Department and some assistance with mechanical thinning on private property adjacent to city property like green space or parks. Another practice that has been successful is prescribed fire on private property. The Rapid City Fire Department has used this approach as a training tool for firefighters while removing hazardous fuel buildup on private property.

16 Wildland Urban Interface Plan 16 In addition, Rapid City has been addressing the WUI through the planning process where new subdivisions are being created, or existing lot modifications are made. At this time the primary focus has been on fuels mitigation for the affected properties within the three mile planning jurisdiction, attempting to limit the number of dwellings served by a single access to 40 units, identifying minimum road widths, and taking advantage of any opportunity to educate the citizens. As Rapid City continues to develop and adopt standards there will be an effort to coordinate with the county officials for a county wide set of standards or codes. When discussing the reduction of severity of a fire in the WUI, the areas impacted are human lives at risk, loss or damage to property and the environment. To reduce the risk to humans, a key factor is the safe and orderly evacuation of people from the fire area. The City of Colorado Springs states that evacuations are probable in the WUI. (Springsgov.com, 2010) Evacuation plans should be of a proactive nature to assure residents are prepared prior to the incident. Recommendations for residents are to: create individual evacuation plans, be prepared by having medications, photos, documents, pets and other items ready, plan on not returning for two to three days, communicate with neighbors and heed warnings and follow instructions of emergency responders. Previous methods to reduce the severity wildfire in the WUI address proactive measures. A reactive technique is that of a rapid emergency response to the report of a wildfire. This involves the local fire departments to specifically address the responses to wildfires. If the fire department having jurisdiction received early notification of a wildfire and responds with the appropriate resources to handle a wildfire in the WUI, there is a better chance to reduce the severity of the fire. South Dakota Department of Agriculture Division of Wildfire has the philosophy to catch fires when they are small in an effort to gain control to eliminate the

17 Wildland Urban Interface Plan 17 potential for a large damaging wildfire. In 2009, the Division was able to control 98% of all wildfires in their response area with initial attack resources (SDDA, 2010). There are local resources in the Rapid City area that could be assembled during an emergency such as a wildfire in the WUI. These resources could have a positive impact by containing the spread of the wildfire thus reducing the severity. According Rob Powell (Appendix B), Rapid City and the Black Hills are a good example of multiple agencies working together to prepare for and fight wildfires in the WUI. Powell emphasized the importance of preparedness and multi-agency cooperation previous to the incident occurring. As the incident is occurring is not the time to attempt to build those relationships with other resources and agencies. Powell cited the importance of firefighter training, established communications, prefire planning, mutual aid agreements and utilization of the Incident Command System. Powell also discussed the importance of knowing other agencies capabilities, urging property owners to practice wildfire preparedness methods, conducting public education for those living in the WUI areas and wildland code adoption by the local jurisdiction. Lastly, Powell talked about the forming of relationships with local elected officials prior to the incident to educate them of associated costs of catastrophic wildfires in the WUI and the possibility of a FEMA disaster declaration after the incident. During the interview, it was evident that there is considerable work that needs to be done prior to ordering of resources during a wildfire in the WUI. If things are in place prior to the incident, assembling of resources can be done with ease, in the case of Rapid City. In order of how Powell would order them was fairly systematic and escalates with the incident. Cost of ordering specialized resources must be factored in during tough economic times. Powell explained that time of day, time of year, expected fire behavior and fire danger rating all factor into assembling of resources. Powell emphasized how important

18 Wildland Urban Interface Plan 18 placing the right people in the right places for the instances when extreme fire danger is forecasted is a key factor to success in accomplishing incident objectives. Resources that could be expected to be available during an average fire season for Rapid City and the Black Hills were as follows: Type 6 engines (Rapid City, volunteer fire departments, USFS, State of SD) Type 3 & 4 engines (volunteer fire departments USFS, State of SD) Denny Gorton-Pennington County Fire Coordinator (single resource) 20 person hand crews (Bear Mountain, Black Hats, Tatanka Interagency Hot Shots) Dozers (State of SD and USFS) Helicopter from Custer, SD (recon, helitack crew, fire suppression, support) Air tankers from nearest air tanker base and air attack Type 3, type 2 or type 1 incident management team from Region 2 (incident dependant) Procedures This applied research project that was completed for the Executive Fire Officer Program used a descriptive research method, collection and analysis of data to identify methods to reduce the number and severity of wildland fires in the wildland urban interface areas of Rapid City. Research for this project began in January, 2010 at the National Fire Academy s Learning Resource Center located in Emmitsburg, Maryland. Literature review continued off-campus at the Rapid City Public Library and the Rapid City Fire Department Library.

19 Wildland Urban Interface Plan 19 A survey was developed and distributed to 20 fire departments located in the western United States (Appendix C). These communities were selected based upon their location and proximity to wildland areas. Survey recipients were asked if they had a significant threat of a wildland fire in the WUI, if their firefighters were training in wildland firefighting practices, if they have wildland firefighting vehicles, if they have adopted codes or ordinances dealing with the WUI, if their jurisdictions offered incentives to private property owners for mitigation practices, if they currently have wildland mitigation plans in place and if they have response plans for those areas most affected by fires in the WUI. The survey assumed that these departments had a basic understanding of the questions in relationship to the issues of the wildland urban interface, accepted mitigation practices and terminology. A limitation to the survey was not knowing how many recipients would respond to the survey. The last procedure used in this research was an interview conducted with Battalion Chief Rob Powell (Appendix B). Chief Powell has 23 years of wildfire experience in the Rapid City area and has served as a Division Supervisor, Structural Protection Specialist and Operations Section Chief on numerous WUI fires in the western United States. Powell is also involved with WUI planning, training and preparedness in the Rapid City area. He is currently an Assistant Chief for the Johnson Siding VFD Fire Protection District and serves as an Operations Section Chief on the Rocky Mt Region Type II Incident Management Team "C". In the interview, Chief Powell was asked what local resources could be assembled in an emergency such as a wildland fire in the WUI area of Rapid City to limit the spread.

20 Wildland Urban Interface Plan 20 Results The results of this research answered the project s four research questions. The first research question asked What techniques can be utilized to reduce the severity of wildland fires in Rapid City? One technique would be to reduce the possibility of a structure igniting due to an approaching wildfire. The Federal Emergency Management Agency (FEMA, 2008) has addressed this problem with recommendations that include wise selection of areas that homes are built, the creation of defensible space around the structure, the addition of infrastructure like hydrants, hard surface roads that are wide enough for evacuation and fire apparatus, and more specifically suggestions that deal with the construction of the home itself to include fire resistive building materials for all portions of the structure. Another technique is the reduction of hazardous fuels. The vegetation or fuels can be treated to reduce the spread or intensity of the fire in the WUI. According to the National Park Service (NPS, 2010) fuel reduction or treatment has been a proven method for reducing the severity of wildfires. Another technique is too improve fire suppression efforts by using the latest technology, best safe practices and fire suppression enhancements while remaining fiscally responsible (Roper, B, 2010). Lastly, to reduce the risk to humans, a key factor is the safe and orderly evacuation of people from the fire area. The City of Colorado Springs states that evacuations are probable in the WUI (Springsgov.com, 2010). Evacuation plans should be of a proactive nature to assure residents are prepared prior to the incident. Recommendations for residents are to: create individual evacuation plans, be personally prepared by having medications, photos, documents, pets and other items ready, plan on not returning for two to three days, communicate with neighbors and heed warnings and follow instructions of emergency responders.

21 Wildland Urban Interface Plan 21 The second research question asked What methods can be used to reduce the number of wildfires in Rapid City? Of the wildfire occurrences in the Black Hills and Rapid City area, it is important to know that 35% of wildfires from the years of 1977 to 2000 were lightning caused. (South Dakota Hazard Mitigation Plan, p. 3-39, 2008). A number of fires will occur naturally and cannot be prevented. This fact makes prevention a less effective strategy than for prevention efforts for structure fires. To address fires that are human caused public education is the most effective method of reducing the overall number of fires. The third research question asked What local resources can be assembled in an emergency to contain the spread of a wildfire? Powell explained in an interview that the resources could be assembled fairly easily in the event of a wildfire, however, could be affected by time of year and extent of fire season and burning conditions. Powell listed type 6 and type 3 engines, the Pennington County Fire Coordinator, 20 person hand crews, dozers, a helicopter, air tankers from nearest air tanker base, air attack and a type 3, type 2 or type 1 incident management team from Region 2 depending on the severity of the incident. Training of Rapid City firefighters in wildfire tactics was important. Of the 12 fire departments responding to the survey, 100% of them conducted training for wildfires and 92% of them had a fleet of wildland firefighting vehicles. Lastly, 70% of the departments surveyed had response plans to areas at risk to a fire in the WUI. The last research question asked What incentives exist for homeowners to prepare their property from the threat of a wildfire? In 2003, the Healthy Forest Restoration Act was enacted and entire communities were targeted to develop Community Wildfire Protection Plans (CWPP). Federal agencies like the USFS and the Bureau of Land Management (BLM) use these completed community plans to prioritize incentives offered for forest management and fuels

22 Wildland Urban Interface Plan 22 reduction projects. Issues such as hazard mitigation, response, preparedness and structure protection are targeted. Another incentive for homeowners is their individual insurance agencies. Insurance agencies that deal with clients in the more fire prone western states offer different incentives to deal with preparedness measures that are taken by individuals. Incentives offered by the City of Rapid City could include free hauling of brush and vegetation as it is removed, free dumping at the city s landfill, a WUI hazards assessment from the Rapid City Fire Department and some assistance with mechanical thinning on private property adjacent to city property like green space or parks. Of the departments that responded to the survey, 43% offered some form of a cost share incentive for fuels reduction between the local municipality and 57% offered state of federal grant money to private property owners. Discussion Wildfires have been a naturally occurring event in Rapid City and the Black Hills of South Dakota for over a hundred years. As a society, those living in the west must accept wildfires and understand that they will likely be personally impacted by a wildfire if they choose to live in the wildland urban interface. In recent years, the severity and devastation of these fires has increased as more residents find value in moving their home into forested areas like Rapid City. The results of the research that was conducted clearly showed the steps that can be taken by the Rapid City Fire Department to ultimately reduce the potential for loss of life, property and damage to the environment due to wildland fires in the WUI through the development of a mitigation program. It is apparent in the results of this research that fires in the WUI are an identified widespread problem that is being addressed by local, state and federal agencies by working together, establishing partnerships and including the individual property owners in the reduction of the risk of wildfire in the WUI. Results showed there are a number of programs

23 Wildland Urban Interface Plan 23 available to assist in the development of a wildland urban interface mitigation program for the Rapid City Fire Department. However, responsibility must be shared among governmental agencies and the private homeowners. Homeowners can play a role by reducing the ignitability of their homes as encouraged by the Federal Emergency Management Agency (FEMA, 2008). In addition to the preparation of the structure to reduce its ignitability, the property or landscape around the structure must be considered. A number of methods to reduce the severity of the fire can be utilized. The vegetation or fuels can be treated to reduce the spread or intensity of the fire in the WUI. According to the National Park Service (NPS, 2010) fuel reduction or treatment has been a proven method for reducing the severity of wildfires. Expectations are that the fire department will respond to a wildfire in the WUI and have enough resources to place a fire truck at every structure for protection. With resources and budgets becoming harder to come by and fires burning more intense, that expectation simply cannot be met. In the last 10 years, the Black Hills of western South Dakota have experienced a number of these catastrophic wildfires. These fires have burned in every area of the Black Hills but have not significantly threatened Rapid City since the Westberry Trails Fire of However, due to the proximity of Rapid City to the Black Hills National Forest, the community is at risk to a catastrophic WUI fire that could threaten lives, property, human development, critical infrastructure and esthetics of the area. The Rapid City Fire Department has deemed the threat of a wildfire one of the most significant threats to the community. If efforts to combat WUI fires are to be successful, the fire service must address broad issues and improve in three areas: 1) Creating fire adaptive communities where structures can withstand the threat of an approaching wildfire. 2) Management of wildland fuels by actively treating the areas of overgrown and flammable vegetation within the interface area adjacent to

24 Wildland Urban Interface Plan 24 communities 3) Improve fire suppression efforts by using the latest technology, best safe practices and fire suppression enhancements while remaining fiscally responsible (Roper, B, 2010). These three categories can further be divided to specifically address mitigation efforts that can be targeted within a program. In the wake of the 2000 fire season, the United States Forest Service developed the United States National Fire Plan (USFS, 2000). Five areas were outlined within the plan: firefighting or suppression, rehabilitation, hazardous fuels reduction or mitigation, community assistance and accountability. The National Fire Plan directly addresses aspects of the need for a wildland urban mitigation program for communities such as Rapid City. In 2003, the Healthy Forest Restoration Act was enacted and entire communities were targeted to develop Community Wildfire Protection Plans (CWPP). Federal agencies like the USFS and the Bureau of Land Management (BLM) use these completed community plans to prioritize incentives offered for forest management and fuels reduction projects. Issues such as hazard mitigation, response, preparedness and structure protection are targeted. There are currently communities in the Black Hills that have received assistance from these agencies. (South Dakota Hazard Mitigation Plan, p. 4-8, 2008). Prevention of fires in the WUI is only so effective when 35% of fires are lightning caused (South Dakota Hazard Mitigation Plan, 2008). Effective prevention tools can be the utilization of schools, individual residents, neighborhood clubs and civic groups. Brochures can be handed out with preparedness and prevention topics. The local media can be used to deliver preparedness messages and demonstrations of fuels reduction (USFS, 2003). Prevention and fuels mitigation measures have been identified. Emergency response is the reactive approach to limiting damage by wildfire. If the fire department having jurisdiction received early notification of a wildfire and responds with the appropriate resources to handle a

25 Wildland Urban Interface Plan 25 wildfire in the WUI, there is a better chance to reduce the severity of the fire. South Dakota Department of Agriculture Division of Wildfire has the philosophy to catch fires when they are small in an effort to gain control to eliminate the potential for a large damaging wildfire. Rob Powell outlined local resources that can be assembled for fire suppression, Powell listed type 6 and type 3 engines, the Pennington County Fire Coordinator, 20 person hand crews, dozers, a helicopter, air tankers from nearest air tanker base, air attack and a type 3, type 2 or type 1 incident management team from Region 2 depending on the severity of the incident. Recommendations The problem is the Rapid City Fire Department responds to a number of wildland fires in the WUI. These fires present a significant risk of loss of life, property and damage to the environment. The Rapid City Fire Department does not have a program to reduce the number of severity of wildland fires in the WUI. Wildfire will occur in and around the Rapid City area and will impact the WUI areas. Leadership within the RCFD should actively participate in planning and program development for the day that a catastrophic wildfire impacts Rapid City. Based on the research that has been completed and the results of that research, the RCFD should begin the process of developing a Wildland Urban Interface Mitigation Program. In accordance with the Healthy Forest Restoration Act (2003), the Rapid City Fire Department should strive to develop a Community Wildfire Protection Plan (CWPP). By doing so, the community stands a better chance to secure assistance from federal agencies such as the United States Forest Service and the Bureau of Land Management. It is not only the responsibility of the RCFD but that of the entire community down to individual property owners. The RCFD should seek to create partnerships and working relationships with private citizens and

26 Wildland Urban Interface Plan 26 other local, state and federal agencies in the Black Hills for development of a comprehensive mitigation program. Such a program should target every aspect of the community and not just the RCFD. Once completed, this program should be shared with elected officials and the entire community. The application of state and federal assistance should follow to create a robust and sustainable program that includes private property owners. Assistance such as grant funding and financial incentives to property owners could go a long way in preparing structures for wildfires in the WUI thus reducing the severity or amount of risk. The risk to catastrophic wildfire in Rapid City is not going away in years to come. It will be part of this community as long as we have homes built where they interface with the forested areas. The Rapid City Fire Department is tasked with educating homeowners and committing to reducing the severity of these fires which will inevitably add to the quality of life in Rapid City.

27 Wildland Urban Interface Plan 27 References California MOU. (October, 2007). Memorandum of Understanding between California Department of Insurance and CAL FIRE. Retrieved November 8, 2010, from City of Colorado Springs. (2010). Wildfire preparedness. Retrieved on October 21, 2010 from City of Rapid City, Fire Department. (2010). Rapid City Fire Department: 2009 annual report. Rapid City, SD: Author. City-Data.com (2010). Retrieved October 18, 2010, from Midwest/Rapid-City-Population-Profile.html FEMA. (September, 2008). Home builders guide to construction in wildfire zones. Technical Fact Sheet Series, FEMA p Mccaffrey, S. (2004). Thinking of wildfire as a natural risk. Society and Natural Resources, 17, Roper, B. (2010, January). Wildland fire and the wildland urban interface. International Association of Fire Chiefs: On Scene, p. 5. National Fire Academy. (2009, February). Executive Analysis of Community Risk Reduction, student manual (FEMA/USFA-EACRR-SM). Emmitsburg, MD: Author

28 Wildland Urban Interface Plan 28 National Park Service U.S. Department of the Interior (NPS). (2010). Fire and aviation management. Retrieved October 21, 2010, from South Dakota Department of Agriculture (SDDA). (2010). Division of Wildland Fire Suppression. Retrieved November 10, 2010 from State of South Dakota. (2008, April). Hazard Mitigation Plan. South Dakota hazard mitigation team. Pierre, South Dakota. pp. 3-39, 4-8 USFA.dhs.gov (2010). Retrieved October 18, 2010, from U.S. Department of Agriculture Forest Service (USFS). (2000). National fire plan: Managing the impact of wildfires on communities and the environment. Retrieved October 12, 2010 from U.S. Department of Agriculture Forest Service (USFS. (2003). Spearfish, South Dakota and the Northern Black Hills: Steps to improve community preparedness for wildfire Retrieved on November 1, 2010 from

29 Appendix A: Rapid City Evergreen Forest Coverage Map Wildland Urban Interface Plan 29

30 Wildland Urban Interface Plan 30 Appendix B: Rob Powell Interview Chief Powell, can you summarize your qualifications as they relate to fires in the WUI? Wildfire experience in Rapid City area for 23 years, currently a Battalion Chief with RCFD. Served as Div/Sup, Structural Protection Specialist and OPS Section Chief on numerous WUI fires. Involved with WUI planning, training and preparedness in Rapid City area. Current Assistant Chief for the Johnson Siding VFD Fire Protection District. OPS Section Chief, Rocky Mt Region Type II Incident Management Team "C". Can you tell me what local resources could be assembled in the event of a wildfire in the WUI areas of Rapid City to reduce the spread of that fire? It is difficult for me to only address the response component or resources that can be assembled without mentioning the work prior to the fire and after the fire that will need to be considered. The work an organization does prior to ignition is the key to the organization s success in dealing with a large WUI fire. Training and drilling with your firefighters on ICS and wildland fire response throughout the year is a given and most FD's do a good job with working with their own folks. Another major key to success is working with, talking and training with other agencies that can provide assistance. Here in the Black Hills we have developed an exemplary example of inter-agency cooperation and response with local VFD's, State and Federal fire agencies and law enforcement. Get to know them personally! Seek out opportunities to train together and set up mutual aid agreements prior to your next big fire. Know what resources they can provide and the ordering process to get them quickly. Trying to figure that out during a rapidly escalating incident is ineffective and sets you

31 Wildland Urban Interface Plan 31 up for failure. Remember, these relationships are a two way street and it is important to offer up your resources when they are in their time of need. Pre-fire responsibility with the public and political entities we serve is very important. PSA's and meeting with home owner groups and civic clubs on the importance of making their property more fire safe through thinning and debris removal will pay dividends when fire moves through their neighborhood. Educate them on what to do when fire approaches their home if they choose not to leave and what to do and where to go when they do have to leave. Strive for Wildland Fire Code adoption in your community which includes fire resistive construction features, road widths, ingress/egress requirements etc. Talk to the people who have the eventual responsibility of paying for your fire response on what the potential is and advise them on what the best options are. Resources like air tankers, helicopters and dozers are very expensive but may be absolutely necessary to save life and property. Inform them of the real possibility of those resource needs in your jurisdiction along with knowing the process for financial assistance, such as a FEMA Disaster Declaration, prior to the event will show them that you are being a proactive Fire Chief. We could go on and on about preparedness such as preplans, hazardous fuels mitigation etc. but one of the keys to our success is allowing our firefighters to go to fires. Participation with Incident Management Teams and supporting out of state fire assignments for our firefighters helps citizens in our region during their time of need. The experience that they (we) attain and bring home to our community is invaluable when we have a WUI fire in our community. It is also a great way to supplement budgets during these tough financial times. My last point on preparedness: During times of very high/extreme fire danger, put your most experienced/qualified personnel in the areas where they will be most effective should you