iffn – Page 3

News from the UN: Report on the FAO/ITTO International Expert Meeting on Forest Fire Management (IFFN No. 24 – April 2001, 78-98)

Food and Agriculture Organization (FAO)

Report on the
FAO/ITTO International Expert Meeting on Forest Fire Management1
Rome, Italy, 7-9 March 2001

(IFFN No. 24 – April 2001, p. 78-98)

Introduction
Opening of the Meeting
Election of Chair and Vice-Chairs
Adoption of Agenda
Conclusion and Recommendations

Annex 1 (Group Photograph)
Annex 2 (List of Participants)
Annex 3 (Report of Working Group 1)
Annex 4 (Report of Working Group 2)
Annex 5 (Some Existing Agreements for Mutual Assistance and Emergency Response)
Annex 6 (Provisional Legal and Operational Checklists for Developing Forest Fire Emergency Agreements)
Annex 7 (Sample of Fire Seasons on Different Continents)
Annex 8 (Provisional action plan and schedule for implementation of recommendations)
Appendix 1 (List of Acronyms)

Final Remarks by the Editor

I. INTRODUCTION

The International Expert Meeting on Forest Fire Management, organised by FAO in cooperation with the International Tropical Timber Organisation (ITTO), was held at FAO Headquarters in Rome from 7 to 9 March 2001.
The meeting was held in follow-up to the FAO meeting on Public Policies Affecting Forest Fires, held in Rome in October 1998, which identified the need for support to the development of regional and bilateral Agreements for collaboration in forest fire management, including identification of technical and financial inputs; improved sharing of information and knowledge, and support to strengthened technical cooperation among developing countries i.a. through networking and twinning; and identification of the roles which FAO and other international organisations could play in this regard, including technical assistance, institutional support and capacity-building.
Organization of an international expert meeting on forest fires was, further, recommended in the consultancy report, “Proposals for Strengthening FAOs Role Regarding Forest Fire Management” (FAO 2000)2.
The specific objectives of the meeting were to:

Examine the need and capacity of concerned member countries in predicting, preventing, managing and fighting forest fires;
Identify countries that have such capacity, and the period of the year when they could put know-how and equipment at the disposal of others who might need it;
Identify countries that could potentially utilise the capacity available with others during a relevant period of the year; and
Explore the possibility of organizing the necessary logistics and compensation in inter-country arrangements of this kind.

On the basis of findings in (i) to (iv) above, the experts were to recommend action related to:

Development of human resources and mechanisms needed to support cooperation in forest fire management and control, mainly at bilateral, regional and, eventually, international levels; and
Mechanisms for the establishment of inter-country Agreements among groups of two or more countries, aimed at coordinating efforts to establish norms and to share resources, personnel and equipment in situations of emergency. This would include review of the feasibility to share heavy land and aerial equipment, and on prospects for developments on a wider geographic basis.

The Experts would, further:

Help identify the role of international organizations in promoting the work in points (i) to (vi).

The Agenda of the meeting is given in Annex 1.
The attendance in the Expert Meeting is detailed in Annex 2. The eighteen experts, from 14 countries, invited by the Director-General of FAO, were selected on the basis of their specialised knowledge and their familiarity with policies, practices, databases, monitoring procedures and dialogue in international, regional and national forest fire management. The experts served in their personal capacity and not as representatives of their governments or organizations.
Participants in the meeting included resource persons from each of FAO and ITTO as the two co-sponsoring agencies and international NGOs including IUCN/WWF and GFMC. Regrets were received from UNESCO, the World Bank, UN/ECE and the UN University. UNEP, WHO and CIFOR were unable to attend.
A number of FAO staff members from other units of the Forestry, Legal, Agriculture and the Sustainable Development Departments, attended the Opening and some of the sessions of the meeting.

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II.    OPENING OF THE MEETING

(Agenda Item 1)

Mr. M. Hosny El-Lakany, Assistant Director-General, Forestry Department, welcomed the participants to the International Expert Meeting on Forest Fire Management on behalf of the Director-General of FAO, Mr. Jaques Diouf.

Mr. El-Lakany noted that the meeting was organized by FAO in collaboration with the International Tropical Timber Organization (ITTO). He expressed the appreciation of FAO for the continuing, constructive collaboration with ITTO as a long-standing partner in the forestry field.

Mr. El-Lakany noted that the recent occurrence of extensive forest fires in different parts of the world had deepened the concern of policy makers, technicians and scientists, the general public, and the mass media alike.

He mentioned that causes, extent and effects of forest fires were related not only to climatic and environmental conditions, but also to national policies, laws and institutions.

He stressed that people used fire because they expected to obtain benefits from its use. The problem was not so much in its use as in its management. The overall goal of a policy on fire had to be focused on reducing adverse effects. Fires constituted a serious threat not only to the environment and human livelihoods, but also to human life. Conversely, fire was an important phenomenon in the dynamics of most ecosystems, and an essential tool in human management of such systems.

Mr. El-Lakany referred to the meeting on Public Policies Affecting Forest Fires mentioned above, in which several of the participants attended. He re-iterated the findings of the Public Policies meeting that emergency responses only to suppress forest fires were not adequate by themselves; and that the key lay in forging links between sustainable land use policies and practices on the one hand and emergency preparedness on the other. He noted that, ultimately, private owners and local people must be intimately involved in the development and implementation of strategies and methodologies; involvement of all stakeholders was essential for success in forest fire prevention, prediction, suppression and monitoring.

Co-operation between sectors at national level and between countries at international level was becoming increasingly important. Recent large-scale fires throughout the world had resulted in instances of countries assisting neighbouring countries on an ad hoc basis. Such cooperation could be significant also in establishing shared databases, strengthening policy-making capabilities, and developing institutional and legislative frameworks.

Mr. El-Lakany noted that FAO had over the past years been active in the field of forest fire management, through support to member countries in policy level dialogue, the collection, analysis, interpretation and dissemination of information and know-how, the updating of forest fire terminology, and the development of methodologies and strategies related to early warning, prevention, management, control and remedial action following forest fires- i.e. rehabilitation. In this work, FAO had closely collaborated with national institutes in member countries, and with a number of international partners.

In line with its mandate, FAO planned to strengthen its work in the field of forest fire management in the coming years. In this regard, FAO will continue to support countries to strengthen national capacities and capabilities, and, in collaboration with international partners, support the sharing of information and know-how among countries.

Mr. El-Lakany stressed that in line with the objectives, the meeting should help review and support the development of mechanisms for the establishment of inter-country Agreements aimed at cooperation and collaboration between countries and, where feasible, the development of bilateral arrangements by which countries might share resources, personnel and equipment in situations of emergency. Requests from countries for this kind of support clearly indicated that as forest fire management issues were of utmost importance in achieving sustainable forest management, FAO and other agencies had to support countries to respond to these challenges.

In closing, Mr. El-Lakany noted that the conclusions, recommendations and action plans to be developed by the present expert meeting would be made available to the 15th Session of the Committee on Forestry to be held in Rome during 12-16 March, 2001. Recommendations of COFO would, subsequently, be incorporated into the FAO work programme, including forthcoming initiatives related to forest fire management.

The representative of ITTO, Mr. Efransjah, joined Mr. El-Lakany in welcoming the forest fire experts and participants to the meeting and acknowledged the close working relationship with FAO in key issues relating to sustainable forest management. He concurred with the statements of Mr. El-Lakany on the major constraints and inadequacies in forest fire management.

Mr. Efransjah emphasized the challenge to synergize the work of all international institutions in order to better respond to the needs of member countries in forest fire management, including prevention. He mentioned the ITTO Guidelines on Fire Management in Tropical Forests as one of the key references under preparation by FAO, of guidelines for temperate and boreal forests. Mr. Efransjah noted that ITTO had redefined its role in forest fire management in light of the recent major fires in Indonesia and SE Asia. ITTO had a policy of collaborating and participating in inter-agency initiatives on forest fire management; he suggested that the expert meeting prepare a concrete plan of action to prioritize the support needed to serve countries and strengthen capacity and response to forest fire management. He looked forward to collaboration with FAO and other international agencies in supporting achievable initiatives that would make immediate and major impacts in forest fire management.

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III.    ELECTION OF CHAIR AND VICE-CHAIRS

(Agenda Item 2)

The meeting elected Mr. Ricardo Vélez Muñoz Chair; and Mr. Johann G. Goldammer and Mr. Samsudin Musa Vice-Chairs. Mr. Jan Troensegaard acted as Rapporteur. Ms. Christel Palmberg-Lerche, Mr. J.B. Carle, Mr. M. Paveri and Ms. G. Allard served in the Secretariat of the meeting.

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IV.    ADOPTION OF AGENDA

(Agenda Item 3)

The Provisional Agenda as proposed by the Secretariat was adopted (see Annex 1).

Mr El Hadji Sène, Director, Forest Resources Division, Forestry Department, FAO, re-iterated that there had been a dramatic increase in the incidence and impacts of fire in recent years, however, the responses for suppression had been inadequate and often ad hoc. He outlined the objectives, outputs, format and content of the present expert meeting. Background documentation for the meeting were highlighted with special reference to the consultancy report “Proposals for Strengthening FAO’s Role Regarding Forest Fire Management”, mentioned above; technical papers by FAO, ITTO and other organisations made available; case studies prepared in advance by experts; Agreements and operational plans used by collaborating countries, and submissions by international agencies in line with the objectives of the meeting. Mr Sène concluded by stressing the need for cooperative and collaborative approaches in preparation of components of an action plan, with particular reference to capacity building and mechanisms in forest fire management and legal instruments for emergency responses. He emphasized that FAO was seeking expert advice on the key issues and recommendations for both immediate and longer term implementation and working groups were designed to facilitate these outputs (see Annex 3 and Annex 4).

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V.    CONCLUSIONS AND RECOMMENDATIONS

Preamble

The experts noted that many previous consultations and meetings on forest fire management had consistently developed a number of recommendations which still awaited effective implementation. What was urgently needed today was an action plan specifying responsibilities and time frames for completion of the tasks at hand.

Stressing that forest fire management was an integral component of sustainable forest and land management, the experts noted the following:

The FAO Meeting on Public Policies Affecting Forest Fires, 1998, recommended that countries adopt sustainable forest and land use policies and practices to manage the flammability of forests;

The vital existing roles and potential for the participation of communities in forest and vegetation fire management was a critical consideration for sustainability;

If sustainable forest management practices were not established, then emergency responses of any kind would ultimately fail;

On-going international criteria and indicators processes for sustainable forest management included indicators related to forest fires and the FAO coordinated Global Forest Resources Assessment database was being expanded to incorporate sustainability indicators;

Widespread emergencies in recent years in all regions of the world underscored the importance of having fire management cooperation and international Agreements on mutual assistance and emergency response established in advance of fires;

Prevention implied the actions in the fields of public awareness, equipment and infrastructure, enforcement and fire fuel management;

There was an urgent necessity for countries to activate strong and effective fire prevention measures. It was better to prevent a wildfire than fight one; and

Member countries needed to develop effective emergency response procedures internally, so that they could more effectively receive and efficiently use outside assistance.

Key Issues to be Addressed

The experts noted that unmanaged and unplanned forest and other vegetation fires had negative impacts on human health and livelihoods, availability of forest products and services, biological diversity, and possibly climate change. In spite of allocation of increased resources, the number, scale and impact of forest and vegetation fires had increased in many countries in recent times.

The experts further noted that existing national organisations and international agencies and mechanisms, some of them with long-standing and significant experience, had struggled to address the complexities and problems of forest fire management. In spite of this, much of the work and efforts of reviews, missions, studies and development of new international structures had not translated effectively into meaningful and sustained improvement in the management of forest fires around the world.

Major Constraints and Challenges

The experts stressed that the main reasons identified for the above situation were:

Lack of national land-use and fire policies and their implementation, and lack of recognition and compliance with related international processes and conventions;

Low level of awareness among policy makers, decision makers and the public, which led to institutions lacking adequate resources, focus and capacity;

Insufficient human resource capability in most aspects of forest fire management due to inadequate education and training;

Inadequate awareness, dissemination and understanding of existing information and experiences, lack of socialisation of information and know-how (e.g. early warning systems, use of prescribed fire);

Lack of basic quantitative and qualitative information and data, which provided a relevant, useful and often necessary basis for the interpretation and meaningful analysis and use of forest fire statistics;

Lack of appropriate bilateral and multi-lateral Agreements for mutual assistance prior to fire emergency events.

Recommendations

The experts recognized the fundamental requirement for effective sustainable forest and land management policies and practices. To achieve this objective, an overriding priority was the establishment of Agreements, protocols and institutional capacity to better share international fire management resources, knowledge and understanding.

The Expert Meeting requested FAO, ITTO and collaborating agencies, to support action as set out in recommendations below:

Policy

Identify relevant existing policy instruments, mechanisms and networks which could support and strengthen commitment and action on forest fire management; and

Support activities that bring local people, professionals and policy makers together and build awareness and capacity.

Technical Support

Facilitate networking and collaboration between countries through identifying or creating national focal points;

Exchange experiences through institutional collaboration;

Provide technical support to enhance management of forest resources that include fire prevention measures as an integral part of such action;

Improve capacity and capability to prepare for forest fires, particularly in countries that have existing gaps in attributes such as laws, policy, planning, practices and monitoring;

Catalyze action in providing technical support to member countries in development of Agreements3 at bilateral and regional levels (see Annex 5. and Annex 6);

Strengthen in-house human and non-staff resources to respond to increasing issues and actions in forest fire management.

Information and Data Bases

Make information available on techniques, networks, resources, collaboration and approaches to forest fire management;

Develop a data standard within the Forest Resource Assessment framework to address the requirements of national and international fire management reporting needs;

Review on-going activities in forest fire management by international and regional organisations to clarify linkages, facilitate collaboration and identify gaps. Key factors are land use policies and practices, community based fire management, knowledge, training, public awareness, institutional arrangements;

Synthesize and support the preparation of country profiles which provide international collaborators and donors an insight into institutional set-up and operational responsibilities at national level, as well as basic information without which outside assistance will not be effective or even possible. Aspects in such country profiles to include reference to: political will, governance, security, socio-economic, climate, vegetation, demography, resources (personnel, equipment, funds, information and infrastructure);

Establish an international forest fire information centre to facilitate the sharing of world-wide information among all partners regarding such issues as: Agreements, resource availability, contacts at regional, eco-regional, global levels, etc. This centre should provide real-time situation reports and conditions. In addition, the centre should be institutionalised in order to play an advisory role in assisting countries to develop Agreements and respond to emergencies.

Emergency Response Agreements

Develop emergency response Agreements bilaterally and multilaterally (at regional or global levels, as appropriate); details will vary depending on considerations that may vary from region to region;

Encourage forest fire management cooperation, and catalyze and support the development of new emergency response Agreements, making full use of already existing regional and other mechanisms, such as those in the CILSS, SADC, Mediterranean, Baltic, South-East Asia, Central America, Caribbean, South America and other regions, as yet to be identified;

Compile an inventory of existing emergency response Agreements to serve as models for others. Guidelines or models should be prepared for developing such Agreements and related operating plans and protocols. FAO could distribute a questionnaire soliciting opportunities for new Agreements;

Activate a task force to track and monitor progress in the development of Agreements and collaboration and develop a detailed action plan that defines time frames, responsibilities and costs to implement the recommendations of the International Expert Meeting4;

Develop funding mechanisms to encourage vigorous action that leads to the development of emergency response Agreements;

Establish compatible incident management organisation systems in countries to facilitate the integration of international resources; such mechanisms need to be compatible between them, but do not need to be identical;

Review and expand a “Fire Season Table”, for all countries to show complementing and overlapping fire seasons; the purpose of this information would be to determine availability of resources from other countries, in cases of emergency (example given in Annex 7.);

Continue and strengthen the update and dissemination of forest fire management related information in collaboration with organizations to be determined;

Develop training and briefing programmes for emergency response teams, based upon on-going experiences; and

Catalyze and support the development of emergency simulation response exercises among countries prior to emergency situations arising.

Collaborating Agencies

Participate in the existing initiatives and mechanisms such as the Interagency Task Force Working Group on Wildland Fire of the International Strategy for Disaster Reduction (ISDR)5; the United Nations International Search and Rescue Advisory Group (INSARAG)6; the Joint United Nations OCHA/UNEP Environment Unit7, the Global Fire Monitoring Centre (GFMC), and actively support the development of their programmes, and facilitate linkages within the Collaborative Partnership on Forests (CPF) 8 ; and

Prepare a preliminary action plan and time schedule (initially without prioritization) for implementing the above recommendations (see Annex 8.).

[ Annex 1 | Annex 2 | Annex 3 | Annex 4 | Annex 5 | Annex 6 | Annex 7 | Annex 8]
[ Appendix 1 | Final Remarks by the Editor ]

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| IFFN No. 24 ]

24. November 2017/by GFMCadmin

UNEP: Wildfires and the Environment: A Global Synthesis (IFFN No. 20 – March 1999)

unep

Wildfires and the Environment: A Global Synthesis

(IFFN No. 20 – March 1999)

The United Nations Environment Programme (UNEP) Global Resource Information Database (GRID) in February 1999 has published “Wildfires and the Environment: A Global Synthesis”. This document can be found on the UNEP-GRID website:

http://grid2.cr.usgs.gov/pubs/wildfire.pdf

The website version is rather large (2.9 MB) and Adobe Acrobat Reader is required. Printed versions of this comprehensive report can be obtained by:

Ashbindu Singh Regional Coordinator
Division of Environmental Information, Assessment and Early Warning – North America
EROS Data Center
USA – Sioux Falls, SD 57198 e-mail: singh@edcmail.cr.usgs.gov
Internet: http://grid2.cr.usgs.gov

Top
IFFN No. 20

24. November 2017/by GFMCadmin

“Fire Hazards, Transboundary Haze and Sustainable Forestry in East Asia and the Pacific” (IFFN No. 20 – March 1999)

wbank

World Bank Workshop

“Fire Hazards, Transboundary Haze and Sustainable Forestry in East Asia and the Pacific”

Surabaya, Indonesia, 9-12 December 1998

(IFFN No. 20 – March 1999,p. 90-91)

The workshop was organized by the Environment and Natural Resources Division of the Economic Development Institute of the World Bank (EDIEN) in collaboration with IC-SEA, CIFOR, ICRAF, WWF, IUCN and the ADB, and co-financed by AUSAID and the Government of the Netherlands. The main objectives of this workshop were:

an analysis of the basic, structural sources of the problem of land use, forest burning and land degradation;

a better understanding of the long-term impacts of fires on resource degradation including forests, biodiversity and water;

the provision of information to assist key decision-makers and opinion leaders to better recognize and respond to the need for national policy and institutional reforms to address long-term forest sector problems;

to go beyond Indonesia to the regional dimensions of the problem with a view to fostering regional cooperation on environmental security;

to develop a network of policy makers and researchers–a community of practice–to enable the sharing of international experiences on policy and technological options for forest fire management and to foster collaborative research on these issues; and

to identify the scope for regional follow up based on the workshop discussions.

As was envisaged at the time of designing the agenda, the deliberations of the workshop went beyond the issue of forest fires into the various aspects of sustainable forestry in Indonesia and in the East Asia region. Top-notch resource persons coupled with knowledgeable and enthusiastic participants ensured very high level discussions that translated into concrete policy recommendations. The recommendations of the discussion groups were the following:

Social Issues

The group examining the social issues related to sustainable forestry identified several constraints to successful forest management. An indicative list is – (a) lack of clarity of tenure; (b) lack of integrated land use planning; (c) inequitable distribution of costs and benefits and lack of proper incentives; (d) lack of community participation in critical decision-making; (e) failure to use traditional knowledge; (f) lack of an enabling legal framework; (g) corruption and lack of transparency; and (h) lack of political will.

The key recommendations of the group are as follows:

collection organization and dissemination of reliable data;

integration of data into a comprehensive land-use strategy;

develop mediation and negotiation skills to involve different stakeholders in forest management;

use mass media to promote awareness and public consultations;

capacity building at the local community level and greater role for the community; and

designation of a lead agency for forest management and clarification of the roles and responsibilities of other agencies.

Technical and Ecological Issues

The group examining the technical and ecological issues related to sustainable forestry identified the following four constraints to sustainable forest management: (i) inadequate / inappropriate land use planning, (ii) inadequate forest resource management plans and their enforcement, (iii) inadequacy or lack of information exchange, awareness and education, and (iv) inadequate environmental monitoring. The key recommendations of the group are as follows:

development of land use plans based on land capability determined through scientific assessments in consultation with stakeholders;

development and implementation of management plans for all categories of forests, internal and external monitoring of forest management based on standard and acceptable sustainability criteria;

development of fire risk assessments and early warning systems;

enabling policies and legislation to ensure institutionalized free flow of information and data within various agencies in the sector, between related sector within the country, among countries of the region and international institutions;

development and institutionalized implementation of comprehensive education and awareness programs pertaining to fire and haze, transboundary atmospheric pollution, soil erosion, water pollution, etc.;

removing institutional inadequacies in the issuance of business activity permits without due considerations of environmental impact assessment;

remove conflicting policies and implement enabling legislation;

reform forestry bureaucracy and define clear responsibilities;

promote transparency and public consultation;

promote donor coordination, collaboration and cooperation; and

foster the political will and the commitment to make hard choices.

Economic Issues

The group examining the economic issues related to sustainable forestry identified the following three main constraints to sustainable forest management: (a) policy distortions in the forestry sector; (b) policy distortions outside the sector but exerting a strong influence in forestry; and (c) lack of regional coordination among forest-rich countries. The main recommendations proposed by the group were:

formulation of clearly articulated national land use policies specifically demarcating the areas of production, conservation and conversion forests;

formulation of a national forest management strategy/plan incorporating technical and policy aspects related to forest harvesting, timber pricing, forest charges, timber trade, ecolabeling, and certification;

environmental impact assessment must be mandatory and comprehensive for all projects;

identification of the national and regional policy gaps by sharing information and experiences across countries in the region; and

ensure that the impacts of policies outside the forestry sector (exchange rate, industrialization, agriculture expansion, etc.) do not have undesirable repercussions in forestry.

The detailed report is available on the World Bank file on the Global fire Monitoring Center (GFMC) website.

For further details please contact either:

Carlos E. Bertao
Senior Operations Officer Environment and Natural Resources Division
World Bank Institute
Fax: ++1-202-676-0977
e-mail: cbertao@worldbank.org or Nalin Kishor
Natural Resource Economist Fax: ++1-202-676-0977
e-mail: nkishor@worldbank.org

IFFN No. 20

24. November 2017/by GFMCadmin

News from the UN: Report on the FAO/ITTO International Expert Meeting on Forest Fire Management, ANNEX 3 (IFFN No. 24 – April 2001,)

fao

Food and Agriculture Organization (FAO)

Report on the
FAO/ITTO International Expert Meeting on Forest Fire Management
Rome, Italy, 7-9 March 2001

(IFFN No. 24 – April 2001, 78-98)

ANNEX 3

Report of Working Group 1:

Human Resources Development, Strengthening Institutional Capacity and Mechanisms for International Cooperation in Forest Fire Management

The working group addressed issues, constraints and recommended actions to strengthen existing mechanisms, networks and institutional capacity (including human resource development) to enhance cooperation and collaboration in forest fire management at bilateral, regional and international levels. The role of national, regional and international agencies were taken into consideration.

Working Group 1 – Members

Goldammer, J.G. (Germany)
Moore, P.F. (IUCN/WWF)
Musa, S. (Malaysia)
Pontani, D. (Italy)
Stocks, B. J. (Canada)
Troensegaard, J. (Denmark) Viana Soares, R. (Brazil)
Xanthopoulos, G. (Greece)
Efransjah (ITTO)
Sène, E. H. (FAO, Director, FOR)
Palmberg-Lerche, C. (FAO, Chief, FORM)
Carle, J. B. (FAO, FORM)

Observer (part time)

Mr. Dario Morini (see Footnote 8)

Key Issues Addressed What?

The number, scale and impact of forest and vegetation fires had increased in recent times. With negative impacts on livelihoods, human health, biodiversity, forest services and possibly climate change;

The existing national organisations and international mechanisms, some of them with significant experience, had struggled to address the problems and complexities of forest fire management; and

Much of the work and effort of reviews, missions, studies and international structures had not translated effectively into meaningful and sustained improvement in the management of forest fire around the world.

Major Constraints and Challenges Why?

Some of the main reasons identified for the above situation were:

Lack of national fire policy and its implementation, and lack of recognition and compliance with related international processes and conventions;

Low level of awareness among policy makers, decision makers and the public, which led to inadequately resourced institutions lacking adequate focus and capacity;

Insufficient human resource capability in most aspects of forest fire management due to inadequate education and training;

Existing information and experience was not well known, effectively distributed, understood or socialised (e.g: early warning systems, use of prescribed fire);

Fire statistics had not always supported meaningful analysis. Both quantitative and qualitative information and data, which was relevant and useful was required.

Recommended Actions How to overcome?

FAO/ITTO were requested to support the work with relevant agencies as set out in the following points:

Information be made available on techniques, networks, resources, collaboration and approaches to fire management;

Develop a data standard that addresses the requirements of national and international fire management reporting needs within the Forest Resources Assessment framework;

Facilitate networking and collaboration between countries through identifying or creating national focal points;

Exchange experience through institutional twinning;

Review ongoing activities in forest fire management by international and regional organisations to clarify linkages, facilitate collaboration and to identify gaps. Key factors being land use policies and practices, knowledge, training, public awareness, institutional arrangements;

Identify relevant existing policy level Agreements, mechanisms and networks which could support and strengthen commitment and action on forest fire management;

Support activities that bring local people, professionals and policy makers together and build awareness and capacity;

Synthesise and support the preparation of country profiles that provide international collaborators and donors and insight into institutional set up, operational responsibilities, and provide basic information without which outside assistance will not be effective or even possible. Aspects to include: political will, governance, security, socio-economic, climate, vegetation, demography, resources (personnel, equipment, funds, information and infrastructure);

Improve capacity and capability to prepare for forest fires, particularly for countries that have existing gaps in these attributes such as laws, policy, plans, practices and monitoring; and

FAO strengthen its regular programme activities in the field of forest fires through appointment of a full time Forest Fire Officer at FAO Headquarters.

Collaborating agencies (co-ordinating with existing initiatives and mechanisms) Who?

Noting that a large number of institutes, agencies and mechanisms were active in the field of forest fires, operating at various levels and with different foci, scope, and level of resources, FAO and ITTO, together with partners should discuss and review forest fire-related initiatives, activities and arrangements. These included, among others;

International agencies and organizations, such as:

UNESCO

WHO

UNEP

UN University

UN/ECE Trade Division

World Bank

IUCN

WWF

GFMC

International mechanisms, such as:

UNFF and the Collaborative Partnership on Forests

Interagency Task Force for Disaster Reduction (ISDR), Working Group on Wildland Fire

INSARAG

OCHA

Regional mechanisms or policy frameworks, such as:

Regional Forestry Commissions coordinated by FAO

Silva Mediterranea

CIHEAM

ECE/FAO/ILO Team of Specialists on Forest Fire

Baltic Fire

SADC, CILSS, IGAD, ASEAN, CCAD

Scheduling and Cost Estimates

The Group recognised the need to develop a time scale for recommended priority action, and to develop corresponding cost estimates or approximations, the Group requested that FAO, in collaboration with ITTO and other international partners, develop a provisional framework plan for further discussion and elaboration.

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24. November 2017/by GFMCadmin

The WHO – UNEP – WMO Health Guidelines for Vegetation Fire Events (will be published in IFFN No. 22 – January 2000)

who

The WHO – UNEP – WMO
Health Guidelines for Vegetation Fire Events

(IFFN No. 22 – January 2000, p. 91-101)

Abstract

As a response to the global recurrence of vegetation fires, WHO, in collaboration with UNEP and WMO has developed the WHO-UNEP-WMO Health Guidelines for Vegetation Fire Events. The guidelines are intended to develop the necessary capacity, to give WHOs support to local planning efforts in health, environment and sustainable development; to strengthen the basis for inter-sector action in sustainable development policy and planning, by providing the necessary evidence and guidance; to determine best practices and disseminate such knowledge worldwide; to strengthen the linkages between health, environment and development; to provide ongoing support in the development and implementation of the Regional and National Haze Action Plans. This paper introduces into the objectives, scope and results of the guidelines.

Introduction

Smoke pollution due to vegetation fire events is an important public health issue and involves major risks for the health of the people and the environment. Vegetation fires in Asia, Latin America, Africa, and other parts of the world are recurring phenomena. They often lead to health impacts such as increased mortality, increased hospital admissions due to respiratory and cardiovascular diseases, and increased emergency room and outpatient visits. Smoke from vegetation fires sometimes even overlies urban air pollution, and exposure levels are intermediate between ambient air pollution and indoor air pollution from domestic cooking and heating.

For several months in 1997-98, the smoke disaster in Southeast Asia affected several countries including Brunei Darussalam, Indonesia, Malaysia, Singapore, Philippines, and Thailand, as well as tens of millions of people in the region. Authorities of these countries have taken measures to mitigate smoke effects on population health and to control forest fires. This was particularly the case for Indonesia, which officially requested UN assistance. The fires threatened to evolve into a more complex emergency, through the potential of causing voluntary or planned population movement (evacuation), and through effects on health, economy and security. In such an emergency the development of an early warning system would involve the multidisciplinary collaboration of scientists, technicians and administrators.

As a response to this emergency, the World Health Organization convened a meeting in October 1998 in Lima, Perú, to develop the WHO-UNEP-WMO Health Guidelines for Vegetation Fire Events (WHO/UNEP/WMO 1999a) on the basis of background papers written on the involved multidisciplinary issues by several experts. The Health Guidelines comprise three separate documents. The Health Guidelines for Vegetation Fire Events Guideline document is a comprehensive handbook with the objective of providing guidance to Governments and authorities from municipalities on the action to be taken in vegetation fire events, when large parts of the population are exposed to smoke from fires. It has to be seen as the main document that summarises the experience and knowledge laid down in the background papers. These background papers are published separately in the document Health Guidelines for Vegetation Fire Events – Background Papers (WHO/UNEP/WMO 1999b). A third document entitled Health Guidelines for Vegetation Fire Events Teachers Guide (WHO/UNEP/WMO 1999c) compiles educational materials that can be used in training courses on the Health Guidelines for Vegetation Fire Events.

The WHO-UNEP-WMO Health Guidelines for Vegetation Fire Events (hereafter referred to Health Guidelines) are intended:

To advise national and international authorities on how to develop and implement an early warning system to protect the health of the population exposed to air pollution caused by vegetation fire events.

To provide support in capacity building and in the development and implementation of the Regional, National, and Local Haze Action Plans. These plans will be integrated into national sustainable development planning efforts, as parts of the Environmental Action Plans;

To provide the necessary evidence and guidance on vegetation fires and their health impacts, to strengthen the basis for inter-sector action in sustainable development policy and planning;

To determine best practices, and disseminate such knowledge worldwide, with the objective of strengthening our understanding of the linkages between health, environment and development.

The Health Guidelines provide decisive recommendations on how to make optimal use of the vast amount of multidisciplinary information that is available worldwide. This information includes knowledge of the global, regional and national extents of vegetation fires obtained by remote sensing techniques and characterises the sources with respect to strength and pollutants. The development of an early warning system is based on ground-base monitoring, space and climate monitoring and modelling. The Health Guidelines also provide insight into the acute and chronic health effects of air pollution due to vegetation fires (“biomass burning”), advise on public advisories and mitigation measures, and provide guidance on the methodology for assessing the health impacts of vegetation fires. Important issues are the prevention of future health-affecting events through discussion of land-use and fire policies, and recommendations on scientific work to be performed in the future in order to implement the early warning system.

According to the Health Guidelines, fires in forests and other vegetation produce gas and particle emissions that have impacts on the composition of the global atmosphere. These emissions interact with those from fossil-fuel combustion and other technological sources which are the major causes of urban air pollution. Smoke emissions from wildland fires cause visibility problems which may result in accidents and economic losses. Smoke generated by wildland fires may also affect human health and lead to loss of human lives. The development of policies and guidelines for reducing the health impacts of smoke from burning vegetation must be linked with policies which address the smoke problem at its source. Therefore, the Health Guidelines help to greatly reduce the burden of excess mortality and preventable disability suffered particularly by the poor. With this in mind, the Health Guidelines implement health gains that, in turn, trigger economies to grow and poverty to be cut.

The Health Guidelines emphasize that early warning systems of fire and atmospheric pollution are essential components of fire and smoke management. They may involve locally generated indicators, such as fire-weather forecasts and assessment of vegetation dryness. Advanced technologies for detection and monitoring of fires, however, rely on remotely sensed data, evaluation of synoptic weather information, modelling capabilities of fire occurrence and behaviour, and international communication systems. These data are integrated and processed with other relevant information, such as the population at risk, and disseminated in fire information systems.

The Health Guidelines are intended to ensure that the health components of Agenda 21 of the United Nations Programme of Action, following the Earth Summit in Rio de Janeiro, are adequately addressed so that health gains trigger economies to grow and, subsequently, poverty to decrease.

Emission, transport of air pollutants and exposure

The Health Guidelines have compiled the information on major fire events in the world and their health and economic effects. Wildfires (uncontrolled fires) are common in all vegetation zones. They are mostly caused by negligence and are often associated with escaped land-use fires. Biomass burning is a major contributor of toxic gaseous and particle air pollutants and occurs throughout the world. The nature of biomass burning is such that the combustion is not complete, and as a result a large number of pollutants are emitted. Among the air pollutants emitted from biomass fires are widespread pollutants such as particulate matter, oxides of nitrogen, sulphur dioxide, and carbon monoxide. But unlike some anthropogenic sources, emissions are poorly quantified (also see Goldammer 1999).

After the emission, during transport, the air pollutants undergo transformation processes, which result in physico-chemical changes of the pollutants.

According to the Health Guidelines, comprehensive approaches to be standardized for use in dealing with potential risks to public health of emissions from vegetation fires should include:

Characterization of the magnitude and composition of the emissions and their transformations during transport;

Quantification of resulting concentrations of ambient air pollutants in populated areas;

Evaluation of likely exposure scenarios for affected populations (both indoors and outdoors);

Assessment of consequent health risks posed by such human exposures.

It is pointed out in the Health Guidelines that with respect to the exposure to smoke plumes from biomass burning and corresponding health effects, particles receive the most attention of all air pollutants that have potentially detrimental health effects. Very small airborne particles (aerodynamic diameters below 2.5 m m) are considered the most significant pollutants. These particles have a very high probability of deposition in deeper parts of the human respiratory tract, where they may lead to a range of health impacts by virtue of their physical, chemical, toxicological or carcinogenic nature (also see Ward 1999).

Ground-based monitoring

In view of the multidisciplinary approach of the Health Guidelines, harmonisation of the various approaches is considered a very important issue. Ground-based air quality monitoring and remote sensing through satellite imagery are necessary to assess air pollutant concentrations of smoke caused by vegetation fires. The Health Guidelines give several recommendations with respect to monitoring. Ground-based air quality monitoring should aim to provide information for public health warning and decision making on protective measures, for dispersion model inputs, verification and development, and for human health studies that evaluate effects of smoke. Air quality monitoring should be conducted on a regular basis in major urban and other populated areas likely to be impacted by biomass burning. In addition, stations should be located in rural areas, for background concentration information. Existing networks should be reviewed and the best sites for monitoring smoke and haze episodes identified. Establishment of additional monitoring stations in areas not covered by the existing networks should be considered. The location of the sites should be determined in accordance with existing guidelines. A ground-based network of air samplers is necessary to measure the concentration of aerosols for sizes under 2.5 m m in diameter (for further reference see Grant 1999; Ward 1999).

In measured compounds efforts should be made to separate the contribution of biomass burning from that of other sources. Monitoring of aerosol mass, visibility, meteorological parameters, optical depth and solar radiation are of highest priority. At selected sites, targeted chemical quantities such as carbon monoxide, ozone, nitrogen oxides, sulphur dioxide, carbon dioxide, ultraviolet radiation, aldehydes and other trace pollutants should be measured.

Formulation of uniform protocols for sampling, including temporal resolution and reporting procedures, should be established. The establishment of quality assurance/quality control procedures is essential for obtaining reliable and reproducible results. National and regional databases should be established for use of data before, during and after smoke/haze episodes. These data can be used, for instance, in epidemiological studies, planning for future events and for transport modelling studies. The exchange of validated measurement data should be promoted. The different air pollution indices that are used in regional smoke and haze alerts should be harmonized.

To maximize the usefulness of data collected by different networks, participation should be encouraged in international activities such as the Global Atmosphere Watch programme of the World Meteorological Organization or the Air Management Information System of the World Health Organization.

Satellite data

The Health Guidelines summarise the existing knowledge on satellite imagery and future developments in the field of remote sensing. Satellite data are available for monitoring fires and smoke aerosol, e.g., at the National Aeronautics and Space Administration (NASA) or the National Oceanic and Atmospheric Administration (NOAA) of the United States. Satellite imagery provides information on the dryness of the vegetation, location and size of major fires and smoke plumes, energy released by fires, and air pollutants in the smoke plumes. Additional satellite sensors delivering better data on vegetation fires will be available within the next 1-2 years. With respect to accessibility and evaluation of these data, it is recommended that a centre of excellence in fire and smoke monitoring be established. The centre should be familiar with the technology and software for analysing satellite data. Its responsibilities would be to oversee the regional estimates of fire emissions and to validate the smoke and emission analyses of satellite data. The centre should develop new strategies for fire and smoke detection and advise the international bodies and agencies of its needs. It would also integrate ground-based, aircraft and satellite information. It would work with the regional centres in disseminating information and new technology to the regional centres, as well as co-ordinate the training of technicians to handle new satellite data and software.

It would also be important to establish an indicator for grading the severity of on-going fires. Such an indicator could combine satellite data on the number of active fires per unit area, size of the areas burning, energy released by the fires, the extent the smoke palls and the concentration of pollutants in them. Also recommended is the development of a space fire monitoring system, comprising fire detection satellites and real-time portable receiving hardware, to provide diurnal information on the location of active fires, smoke, and trace gases emitted from the fires. If possible, the information generated by this system should be provided directly from the satellite to local users in near real-time, in a simple and inexpensive manner.

On a regional level there is a need for fire activity centres. These centres would receive the regional satellite data using their own receiving stations, and integrate them both with meteorological information and with ground and aircraft monitoring efforts. The centres would use the data to monitor the development of the fires and smoke and predict the spread of the smoke. The centres are needed since the characteristics and amounty of vegetation burning change from region to region, and since direct reception of the satellite data is essential for real time operation. As there are already WMO centres or representatives with satellite and meteorological capability, they are natural candidates for the location of the regional fire activity centres.

With respect to data availability, it is recommended that NASA and NOAA of the United States and other appropriate agencies be approached to continue placing relevant data such as aerosol and vegetation indexes on the Web. There is a need to develop software packages and instruction material for using satellite data to warn of smoke impacts and to analyse smoke concentrations. Where extensive and intense fire episodes cause severe health problems the reliability of the fire emission estimates should be ensured by continuous validation, using ground based in situ and remote measurements. Such validation will enhance the use of satellite data as input to the simulation model. Once developed, the software packages would also support the determination of environmental hazards for human health.

Atmospheric transport models

With respect to the evaluation of ground-based monitoring data and satellite imagery for the purpose of early warning, the Health Guidelines recommend the use of dispersion and trajectory modeling. The distribution and concentrations of fire emissions must be calculated from atmospheric transport models. A description of the spatial and temporal distribution of fire emissions should consider the situation before, during, and after the episode. Defined goals are to be achieved in each of those three stages of the event. It is recommended that the agency capable of carrying out the complete suite of tasks associated with climate monitoring and modelling be identified in each area (further see Garstang 1999; Tapper and Hess 1999)..

Mitigation measures

The Health Guidelines discuss the various mitigation measures that are appropriate to avoid human health effects. Mitigation measures recommended for acute events include remaining indoors, personal lifestyle modifications, use of air cleaners, use of masks and respirators, outdoor precautionary measures, evacuation to emergency shelters, and school and business activities. To enhance the protection offered by remaining indoors, individuals/building managers should take action to reduce the infiltration of outdoor air. Schools, childcare centres, retirement centres, nursing homes, hospitals and hospices should be especially urged to provide air conditioned rooms to susceptible individuals, and effective filters should be installed and maintained in these rooms. During severe smoke episodes, members of the public should be advised on lifestyle modifications, such as the reduction of physical activities and the restriction of cigarette smoking. Evaluation of the use of portable air cleaners should be conducted and appropriate advice given to the public, to assist them in purchasing models suitable for homes or offices. Advice should be given to the public on specific dust/mask respirator types and their relative utility for filtration of smoke particles, including the proper use and selection of available dust masks/respirators. Precautionary measures should be taken to safeguard the health and safety of workers who must continue to perform outdoor work. For example, employers should provide respirators to workers who must work outdoors during acute emergencies. In severe episodes, susceptible individuals should be allowed free access to air-conditioned emergency shelters (with adequate particle filtration). These could be located inside large commercial buildings, educational facilities or shopping malls.

Health effects

Based on the background papers provided by several authors (Pinto and Grant 1999; Brauer 1999; Malilay 1999; Mannino 1999) the Health Guidelines summarize the existing information on the health effects of smoke generated by biomass burning (“biomass smoke”). In addition, the results of several case studies were evaluated (Levine 1999; Kunii 1999; Dawud 1999; Phonboon et al. 1999). The epidemiological studies of indoor and community exposure to biomass smoke indicate a consistent relationship between exposure and increased respiratory symptoms, increased risk of respiratory illness and decreased lung function. A limited number of studies also indicate an association between biomass smoke exposure and visits to emergency departments. Recent assessments of impacts from the 1997-98 Southeast Asian haze episode support an association with increased hospital visits. Studies of the relationship between biomass-smoke air pollution and acute mortality have not been conducted to date. However, as biomass-smoke air pollution mostly consists of fine and ultra-fine particulate matter the new air quality guidelines of the WHO for particulate matter suggest a definite impact on daily mortality, hospital admissions, emergency department visits and outpatient visits.

The health effects of long-term inhalation of smoke generated by burning of plant biomass have been documented in developing countries where women spend many hours cooking over non-vented indoor stoves (also see Brauer 1999). These studies indicate that vegetation fire smoke exposure is associated with the development of chronic lung disease in adults, although these exposures are much higher than would occur as a result of short-term exposure to air pollution associated with vegetation fires. These studies do indicate the serious consequences of exposure to high levels of smoke pollution. The limited data on biomass burning smoke and cancer do not indicate an increased risk even at very high levels of exposure. This evidence includes studies of long-term exposure to high levels of smoke from domestic cooking in developing countries. While biomass burning smoke clearly is potentially carcinogenic, it is much less so than motor vehicle exhaust.

Assessing the health effects of smoke from vegetation fires is a difficult task. Critical factors in ascertaining the health effects of air pollution include: characteristics of the pollutants, population exposure, individual exposure, susceptibility of the exposed individual, potential confounding factors, and the range of health effects being studied. The availability of data on these factors greatly affects the type of study that might be undertaken. Types of study designs in air pollution epidemiology vary widely and include: short-term controlled exposure studies (chamber studies), short-term exposure studies, and long-term exposure studies (also see Mannino 1999). The latter two designs reflect a typical epidemiological approach to the problem of air pollution exposure. Any type of study requires careful planning of the design, implementation and analysis. During an emergency there may be a need to conduct a rapid epidemiological assessment, focusing on the demographics and health concerns of people in the affected community.

An important component of a public health plan to deal with pollution-related exposure is a surveillance system for monitoring respiratory or cardiovascular diseases (also see Mannino 1999). While many countries have such a system in place for infectious diseases, very few have a similar system in place for noninfectious diseases. With the increasing numbers of computerized clinical databases, however, it may be possible to set up a surveillance system for diseases that would be affected by fire-related air pollutants. Before a fire emergency a health department could, potentially, set up a surveillance system looking for chronic cardio-respiratory diseases. If this was in place, changes in these diseases could be assessed during a fire episode. In the absence of such a surveillance system, it is unlikely that any active surveillance would provide reliable information that a public health department could act on. After a fire episode several research designs, as noted above, are available to health departments who want to determine what health effects the fire episode had and who want to use the data to shape future policy.

Public policies

The Health Guidelines consider and summarise public policies in various countries (also see Bakar bin Jaafar 1999; Marileo 1999; Johnson 1999; Ooi et al. 1999; Phonboon 1999). In this discussion the policy objectives and policy elements referring to development, assessment and management are described. These elements are ingredients of national haze action plans. The lessons learned from the 1997-98 fires in South-East Asia are important to avoid the recurrence of such an emergency in the future. A number of topics are enumerated in the Health Guidelines that need further research.

Policy objectives

With regards to Policy Objectives, the elements to be considered are:

To prevent and control land and forest fires;

To safeguard public health and safety in such an occurrence;

To prohibit open burning;

To introduce and implement ambient air quality guidelines and standards;

To strengthen control on emissions from mobile and stationary sources.

The elements with respect to Policy on Development are:

To set land use planning based on a sustainable development principle;

To protect communities and ecosystems at risk from fire and haze effects.

The elements with respect to Policy on Assessment include:

To monitor and report on air quality;

To develop an effective mechanism for monitoring land and forest fires;

To develop the capability for detecting and predicting forest fires and haze;

To monitor the health and environmental impacts of haze.

The Management Policies focus on the following aspects:

To provide the public and the authorities with information on air quality and action to be taken;

To advise the public on action to be taken for health protection;

To ensure medical facilities and health supplies for mitigating health impacts;

To provide support to countries in need and to promote cooperation among countries;

To minimize haze pollution from fuel burning;

To strengthen the capabilities of relevant agencies;

To strengthen interagency cooperation and support.

As the Health Guidelines stress, the success of any policy, action plan, or response mechanism will rest on the timely exchange of data, information and experiences among various national, regional, and international authorities or centres of excellence, and on their close co-operation and continuing support. Institutional arrangements at international and regional levels need to be developed and used. Early warning capability is invaluable to national authorities trying to enforce strict controls on both controlled and open burning of vegetation, crops, forest, and any form of biomass or waste (also see Goldammer 1999). During a fire, national authorities should consult competent international bodies for advice. These international bodies should investigate the feasibility of establishing an ongoing panel of experts on haze, whose members are linked via electronic media for the rapid exchange of data and information.

Among the critical components of national governments efforts to manage vegetation fires is the education of the population regarding the potential health impacts of air pollution produced in vegetation fires. These education efforts must occur both prior to, and during, fires to keep the population informed.

National Haze Action Plans

The Health Guidelines emphasise the necessity of developing National Haze Action Plans to ensure full preparedness of the population for the health impacts of vegetation fire pollution. In each country, a comprehensive National Haze Action Plan should be developed and widely publicized through the media, before the occurrence of any air pollution episode. Based on this action plan, government departments should develop operating procedures and ensure that the population will be aware of any changes made to public services and facilities in an emergency situation. Data on air pollution related illnesses from primary health care providers, hospitals, and mortality registries should be reported periodically. Special educational efforts should be developed for susceptible populations, such as asthmatics, the elderly, and children to ensure that they are adequately prepared for air pollution episodes. Health authorities, via the media, should proactively address frequently asked questions, such as the safety of food and potable water supplies exposed to smoke for prolonged periods.

Lessons learned from the 1997-98 fires

In reviewing the 1997-98 fire and smoke episodes, the Food and Agriculture Organization (FAO) of the United Nations evaluated those public policies which affect forest fires (FAO 1999). The expert consultation concluded that there is a need for reliable national, regional and global systems for fire reporting and for analysis and storage of data. Such data, and information on fire causes and socio-economic and environmental effects, are required as a sound basis for policy making. Linked to these is the requirement for international agreement on terms and definitions, as a basis for information sharing and communication. Information on resource management alternatives and their consequences is essential for involvement of all stakeholders in policy formulation and development.

No single formula can cover the wide range of ecological, socio-economic, and cultural conditions that exist between and within regions, nor cover the different objectives that different societies will decide. Certain broad principles exist, however, that are common to all situations and objectives. These principles include the following (FAO 1999):

The formulation of national and regional policies specifically addressing forest fires, as an integral component of land-use policies, where they previously did not exist.

Flexibility in policy implementation, and the capability of reviewing and revising fire-related policies

Clear and measurable policy objectives and implementation strategies are needed to minimise the many adverse effects of uncontrolled fires, and to maximise the benefits from fire prevention, or from the controlled use of fire. Such objectives and implementation strategies would provide for sustainable land use practices, compatible inter-sector policies, joint fire management responsibilities at the community level, and the participation of the private sector and non-governmental organizations. Decision makers should recognize that sustainable land management may, in many instances, be attained only through the devolution of the control of forest resources, and through the involvement of communities, adjacent to or within the forest, in all aspects of management and fire protection. Land-use policies may also have to consider the need for appropriate incentives and subsidies to promote fire prevention.

A favourable policy environment must be created for all aspects of systematic fire management (prevention, detection, suppression, prescribed fire, post-fire rehabilitation etc.) and for an appropriate balance among individual system components. Such an environment should attempt to quantify the monetary and non-market values, to emphasise the costs and benefits to society and to decision-makers.

Policies that tend to increase forest fires must consider public health effects. Policies concerned with maintaining the health of fire-adapted ecosystems may have to balance public health and forest health issues.

The Health Guidelines fully support these principles. Continued and improved collaboration and co-ordination are urged among the many organizations involved in forest fire-related activities at global and regional levels. Transboundary or regional agreements for collaboration in fire management need to be developed, with the technical and financial support of international organizations. International organizations, in close collaboration with the fire science community and end-users, are further urged to support the design and implementation of a global fire inventory or reporting system, to increase preparedness and responsiveness to fire outbreaks at national, regional and global levels. International organisations should play a catalytic role in the establishment of networks, to promote the sharing of information and technical co-operation among developing and developed countries. Sufficient resources should be allocated for these purposes.

Accumulated experience should not be neglected, and local indigenous knowledge and customs should be acquired from traditional fire related cultures as a guide for fire management practices and policies. Evaluation systems should be developed to assess fire damage and benefits, and to draw attention to the true costs and benefits of fires. Policies and techniques that aim to increase agricultural productivity, while providing and enforcing disincentives for reckless programmes, will slow forest conversion for unsustainable agriculture and will thus reduce forest fire damage.

Research needs

According to the Health Guidelines, some technical aspects may support policy formulation and implementation. They include systematic or integrated fire management; institutional co-operation; restoration/rehabilitation; and technology/research/information. New technologies offer the means to introduce new and more environmentally and socially acceptable land use management policies; particular attention is drawn to “zero-burning” land clearing techniques. Fire research at national and regional levels needs to be strengthened, to support development of fire policies and fire management capabilities, especially related to investigations into socio-economic and cultural aspects of fire outbreaks. Fire research is needed into a number of topics including:

The development of dedicated space-borne remote sensing technologies for improving decision support in fire management, including technologies for fire detection and early warning;

Post-fire recovery techniques, fire effects and ecosystem recovery processes;

The impact of climate change on fire regimes and fire severity;

The implementation of a global vegetation fire inventory, and the implementation of a center to monitor, archive, and disseminate global fire information, as well as forecast fire and related hazards;

Special attention to fire-generated radioactive emissions;

The development of source information for fires in different ecosystems;

Physical/chemical factors contributing to the changes that occur over time and space during transport;

Compilation of information pertaining to levels of exposure and fire activity, in conjunction with past fire and smoke episodes;

Mitigation approaches;

Health impacts of air pollution due to biomass burning within the general population.

Conclusions

According to the WHO-UNEP-WMO Health Guidelines the situation with respect to the occurrence of forest fires, the potential health effects of smoke from vegetation fires, their mitigation and early warning of the populations are to be summarised as follows. Vegetation fires, particularly uncontrolled ones, are a substantial source of air pollution in urban and rural areas. They add to urban and indoor air pollution (from domestic wood and coal burning for cooking and heating). Inhaling the smoke from vegetation fires enhances the risk of acute respiratory infections in childhood, a major killer of young children in developing countries. The health of women is also particularly affected as women are already exposed to high levels of air pollution in the home environment and they suffer more from this additional burden of pollution caused by vegetation fires. Land clearing practices through vegetation fires add to rapid environmental changes and degradation. The use of forest fires for land clearing is also a consequence of poverty. Combating poverty is the central challenge to ensure sustainable development and healthy living conditions. As health is so dependent on environment, there is a need to address the global dimensions of the problem of forest fires.

Vegetation fire events are an important public health issue since they involve major risks for the health of the people and the environment. Because of their nation- and region-wide effects, vegetation fire events can evolve from a sort of “natural” disaster into a more complex emergency because of population movement, and through their effects on the economy and security of the affected countries. In view of the character of a potentially complex emergency from vegetation fire events, the development of an early warning system for such events involves the collaboration of multidisciplinary groups of scientists, technicians and administrators. The Health guidelines provide the knowledge for implementing an early warning system to protect human health from the impacts of smoke and haze from vegetation fires and, therefore, help governments to cope with the recurring events.

The Health Guidelines are intended to develop the necessary capacity not only at regional and national levels, but also at local levels. In addition, to give WHOs support to the local health, environmental and sustainable development planning efforts being undertaken. The Health Guidelines provide the necessary evidence and guidance for strengthening inter-sector action in sustainable development policy and planning. They aso determine best practices, and disseminate such knowledge worldwide. They strengthen the linkages between health, environment and development; and provide ongoing support in the development and implementation of the Regional and National Haze Action Plans, as part of Environmental Action Plans to be integrated into national sustainable development efforts.

The Health Guidelines for Vegetation Fire Events help to ensure that the health components of Agenda 21 of the United Nations Programme of Action, following the Earth Summit in Rio de Janeiro, are adequately addressed.

Acknowledgements

The Health Guideline for Vegetation Fire Events are a result of the work of two departments of the WHO: the Department of Emergency and Humanitarian Action (EHA) and the Department of Protection of the Human Environment (PHE), both in the Cluster of Sustainable Development and Healthy Environment (SDE) of the WHO. This report would not have been possible without the work of the WHO-UNEP-WMO Expert Task Force convened in Lima, Perú, in October 1998. Thanks are due to Abu Bakar bin Jaafar, Celso Bambarén, Michael Brauer (Workshop co-chair), Harold Cáceres Deza, Sergio Caporali, Hashim Daud,Yudanarso Dawud, Michael Garstang, Goh Kee Tai, Johann G. Goldammer (Chair of the Health Guidelines Workshop), Hiremagalur N. B. Gopalan, William B. Grant, Angelika Heil, Mauricio Ilabaca Marileo; Liisa Jalkanen, Roy A. Johnson, Yoram Kaufman, Etsuko Kita, Marcelo Korc, Osamu Kunii, Arlene S. Levine, Joel S. Levine (Workshop co-chair), Sze Fook Lim, Carlos A. Llerena, Josephine Malilay, David Mannino, Lidia Morawska, Daniel Murdiyarso, Ooi Peng Lim, Kanchanasak Phonboon, Joseph P. Pinto, Jean Luc Poncelet, Robert R. Romano, Alberto Setzer, Khalid Shibib, Orman Simpson, Nigel J. Tapper, J. Hernán Ulloa-Pinto, Claude de Ville de Goyet, Darold E. Ward, Paulus Angus Winarso.

Particular thanks are due to the Ministry of Health of Japan, which provided ample funding to convene the WHO-UNEP-WMO expert task force meeting in Lima, Perú, in October 1998 to produce the Health Guidelines for Vegetation Fire Events including the Guideline document, the Background Papers document and the Teachers Guide. Moreover, this funding could be used to convene two training courses on the Health Guidelines, the first one in Kuala Lumpur, Malaysia in December 1998, and the second one in Brasilia, Brazil, in May 1999.

The contributions of the United Nations Environment Programme (UNEP) and the World Meteorological Organization (WMO) in co-sponsoring the expert task force meeting on the Health Guidelines are gratefully acknowledged.

Disclaimer

This paper does not reflect the policy of the World Health Organization. The author alone is responsible for the views expressed in this report.

Dietrich Schwela
Department of Protection of the Human Environment
Occupational and Environmental Health Programme
World Health Organization
CH 1211 Geneva 27
Switzerland

References

Bakar bin Jaafar A 1999 Review of government environmental & health policies, legislation and emergency response mechanisms. In: WHO-UNEP-WMO (1999b), pp. 382-403.

Brauer M 1999 Health impacts of biomass air pollution. In: WHO-UNEP-WMO (1999b), pp. 186-257.

Dawud D 1999 Smoke episodes and assessment of health impacts related to haze from forest fires: Indonesian experience. In: WHO-UNEP-WMO (1999b), pp. 317-333.

FAO 1999 Meeting on Public Policies Affecting Forest Fires, Rome, 28-30 October 1998. FAO Forestry Paper 138. Food and Agriculture Organization of the United Nations, Rome, Italy.

Garstang M 1999 The role of the atmosphere in fire occurrence and the distribution of fire products. In: WHO-UNEP-WMO (1999b), pp. 102-122.

Goldammer JG 1999 Early warning systems for the prediction of an appropriate response to wildfires and related environmental hazards. In: WHO-UNEP-WMO (1999b), pp. 9-70.

Grant WB 1999 Analytical methods for monitoring smokes and aerosols from forest fires: Review, summary and interpretation of use of data by health agencies in emergency response planning. In: WHO-UNEP-WMO (1999b), pp. 87-101.

Johnson RA 1999 Guidance on measures in forest fire emergency cases. In: WHO-UNEP-WMO (1999b), pp. 412-466.

Kunii O 1999 Basic fact-determining downwind exposures and their associated health effects, assessment of health effects in practice: a case study in the 1997 forest fires in Indonesia. In: WHO-UNEP-WMO (1999b), pp. 299- 316.

Levine JS Gaseous and particulate emissions released to the atmosphere from vegetation fires. In: WHO-UNEP-WMO (1999b), pp. 284-298.

Malilay J 1999 A review of factors affecting the human health impacts of air pollutants from forest fires. In: WHO-UNEP-WMO (1999b), pp. 258-274.

Mannino DM 1999 Guidance on methodology for assessment of forest fire induced health effects. In: WHO-UNEP-WMO (1999b), pp. 275-283.

Marileo MI 1999 Role of the forest fire emergency standards. In: WHO-UNEP-WMO (1999b), pp. 404-411.

Ooi PL, Hakeem A, Goh KT, Brauer M 1999 Public information and mitigation measures for a haze episode: the Singapore experience. In: WHO-UNEP-WMO (1999b), pp. 467-485.

Phonboo K 1999 Application of appropriate short-term air quality guidelines. In: WHO-UNEP-WMO (1999b), pp. 486-492.

Phonboon K, Paisarn-uchapong O, Kanatharana P, Agsorn S 1999 Smoke episodes emissions characterization and assessment of health risks related to downwind air quality case study, Thailand. In: WHO-UNEP-WMO (1999b), pp. 334-381.

Pinto JP, Grant LD 1999 Approaches to monitoring of air pollutants and evaluation of health impacts produced by biomass burning. In: WHO-UNEP-WMO (1999b), pp. 149-185.

Tapper NJ, Hess GD 1999 Forest fire emissions dispersion modelling for emergency response planning: determination of critical model inputs and processes. In: WHO-UNEP-WMO (1999b), pp. 123-148.

Ward DE 1999 Smoke from wildland fires. In: WHO-UNEP-WMO (1999b), pp. 71-86.

Publications of the Guidelines:

WHO/UNEP/WMO 1999a Health Guidelines for Vegetation Fire Events Guideline document. D. Schwela, J.G. Goldammer, L. Morawska, O. Simpson (Eds.) United Nations Environment Programme, Nairobi, World Health Organization, Geneva, World Meteorological Organization, Geneva, Institute of Environmental Epidemiology, WHO Collaborating Centre for Environmental Epidemiology, Ministry of the Environment, Singapore (ISBN 981-04-1460-9)

WHO/UNEP/WMO 1999b Health Guidelines for Vegetation Fire Events – Background Papers.

Kee-Tai-Goh, D. Schwela, J.G. Goldammer, O. Simpson (Eds.) United Nations Environment Programme, Nairobi, World Health Organization, Geneva, World Meteorological Organization, Geneva, Institute of Environmental Epidemiology, WHO Collaborating Centre for Environmental Epidemiology, Ministry of the Environment, Singapore (ISBN 981-04-1460-9)

WHO/UNEP/WMO 1999c Health Guidelines for Vegetation Fire Events Teachers Guide. D. Schwela, L. Morawska, Abu Bakar bin Jaafar (Eds.) United Nations Environment Programme, Nairobi, World Health Organization, Geneva, World Meteorological Organization, Geneva, Institute of Environmental Epidemiology, WHO Collaborating Centre for Environmental Epidemiology, Ministry of the Environment, Singapore (ISBN 981-04-1460-9)

The Guidelines, the Background Papers and the Teacher’s Guide are also available on the internet:

http://www.who.int/peh/air/vegetation_fires.htm

By mid of 2000 the set of guideline documents will be available on CD Rom (English, Spanish, French). Requests may be directed to the author of this paper.

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24. November 2017/by GFMCadmin

News from the UN: Report on the FAO/ITTO International Expert Meeting on Forest Fire Management, ANNEX 4 (IFFN No. 24 – April 2001)

fao

Food and Agriculture Organization (FAO)

Report on the
FAO/ITTO International Expert Meeting on Forest Fire Management
Rome, Italy, 7-9 March 2001

(IFFN No. 24 – April 2001, 78-98)

ANNEX 4

Report of Working Group 2:

Inter-Country Agreements to Share Resources in Emergencies

The working group addressed issues, constraints and recommend actions relating to inter-country Agreements to establish operational procedures and share resources, information, personnel and equipment in situations of emergency. This would include review of the feasibility to share heavy land and aerial equipment and prospects for development on a wider geographic basis.

Working Group 2 (Legal Instruments)

Balatsos, P. (Greece)
Bekele, M. (Ethiopia)
Cedeño Sánchez, O. (Mexico)
Heine, J. (South Africa)
Kizmaz, M. (Turkey)
Mutch, R. (USA)
Sanhueza, P. (Chile)

Sneeuwjagt, R. (Australia)
Vélez Muñoz, R. (Spain)
Paveri, M. (FAO, Chief, FONP)
Mekouar, A. (FAO, LEGN)
Allard, G. (FAO, FORM)
Malagnoux, M. (FAO, FORC)

Forest Fire Emergency Cooperation Agreements

The Group identified the existence of a number of Forest Fire Emergency Co-operation Agreements at various levels, including:-

in-country Agreements

central level

local level

bilateral Agreements; and

multilateral Agreements

A list of Agreements known to exist and referred to by the experts in given in Annex 5.

It will be necessary to use the comprehensive and proven instruments as base documents for other countries seeking or providing assistance to derive their own Agreements suited to their unique circumstances.

Key contents to be considered by countries as a base for preparation of their Agreements are listed in Annex 6.

RECOMMENDATIONS

Considering that:

Forest fire management was closely linked to sustainable forest management practices;

Member countries were strongly encouraged to establish sustainable forest management policies and practices to reduce the flammability of forests. If sustainable practices were not established, then emergency responses of any kind would ultimately fail;

Member countries were encouraged to activate strong and effective fire prevention campaigns. It was better to prevent a wildfire than fight one. Prevention implies public awareness, equipment and infrastructure preparation, enforcement and fire fuel management;

Member countries were encouraged to develop effective emergency response procedures internally, so that they would be able to more effectively receive outside assistance;

Widespread emergencies in recent years in all regions of the world had underscored the importance of having International Agreements established in advance of fires;

Efficient emergency assistance required prior planning among all parties due to the nature of forest fires to prepare personnel, organisation, equipment, procedures, etc.

It was recommended that FAO and ITTO and other relevant partners:

Develop Agreements bilaterally and multilaterally (at regional or global levels, as appropriate), with due consideration to conditions which may vary region by region;

Encourage the development of new Agreements through existing regional and other mechanisms. taking into consideration experiences to date;

Provide technical support to member countries in development of Agreements at national and regional levels;

Compile an inventory of existing Agreements to serve as models for others. In this regard, FAO may consider distributing a questionnaire soliciting opportunities for new Agreements;

Activate a task force to track and monitor progress in the development of Agreements and develop an action plan that defines objectives, outputs, activities, inputs, costs, timeframes and responsibilities to implement the recommendations of the International Expert Meeting;

Review possibilities for developing appropriate funding mechanisms to encourage action leading to the development of Agreements;

Assist countries to describe and establish mutually compatible incident management organisation systems to facilitate the integration of international resources;

Review and apply regional or eco-regional, or global, “Fire Season Tables”, showing coincidence of overlapping fire seasons in determining availability of international resources (example given in Annex 7.);

Review the possibilities to coordinate the tasks of information updates and sharing;

Review recommendations and identify appropriate organizations and agencies to take action;

Develop training, technical exchanges and briefing programmes between countries in non-crisis situations in preparation for emergency response;

Develop emergency simulation response exercises among countries;

Assist to establish an international forest fire information centre to facilitiate the sharing of world-wide information among all partners regarding such items as: Agreements, resources availability, contact points, etc. This centre would provide real time situation reports and conditions. In addition, the centre would be institutionalized to provide an advisory role in assisting countries to develop Agreements and respond to emergencies;

Disseminate information on issues and experiences in the use of volunteers, local communities and other resources in prevention and remedial action in forest fire management;.

Disseminate information and support training in the application of airborne and remote sensing technologies as tools in integrated fire management.

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24. November 2017/by GFMCadmin

News from the UN: Report on the FAO/ITTO International Expert Meeting on Forest Fire Management, ANNEX 5 (IFFN No. 24 – April 2001)

fao

Food and Agriculture Organization (FAO)

Report on the
FAO/ITTO International Expert Meeting on Forest Fire Management
Rome, Italy, 7-9 March 2001

(IFFN No. 24 – April 2001, 78-98)

ANNEX 5

Tabel 1. Some Existing Agreements for Mutual Assistance and Emergency Response 11

Agreement Type

Country

Agreement Partner Descriptions

In-country

USA

National, with individual States (National Wildfire Coordinating Group
National with Military

Mexico

Federal Government with individual States

Federal (SEMARNAP) with Military

Chile

National Government with Regions

National Government with Private Sector

Bilateral Agreements between Regions

Bilateral Agreements between Regions and Private Sector

Private to Private Sector Agreements

Other Agreements with Armed Forces, Fire Brigades etc

Australia

Federal Government with individual States (large emergencies)

State to State agreements

South Africa

Agreements with Military

Agreements between Provinces and National Government (under formulation)

France

Prevention done within Forestry Sector

Fire Suppression under Civil Society (Military Corps)

Centralized authority decides how, without formal Agreements

Local Authorities have local mechanisms to share resources

Ethiopia

Individual Regions responsible

Federal level have funds for Emergency Plans to share resources

Spain

National Coordinating Committee establishes rules for Sharing Central Government resources to fight fire when Autonomous Region resources need

Bilateral Agreements between Regions (principle of single command, each agency covers costs of services provided)

Agreements with Armed Forces

Greece

Resources centrally allocated in cooperation with Districts for fire suppression

Prevention: National leadership with funding to Regions

Involvement of Local Authorities through personnel, volunteers

Regions have Emergency Plans communicated to National Government

Bilateral Agreements

Spain

Portugal, France and Morocco (Aircraft and equipment), West Mediterranean
Specific Coordinating Centre in each Country, Cost paid by receiving countries

USA

USA with Mexico

USA with Canada

USA and Canada with Australia and New Zealand (under preparation)

Chile

Chile with Argentina

Turkey

Central Government, Memo of Understanding with Other Countries for Fire Resources, allocated centrally and distributed at the local level

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24. November 2017/by GFMCadmin

News from the UN: Report on the FAO/ITTO International Expert Meeting on Forest Fire Management, ANNEX 6 (IFFN No. 24 – April 2001)

fao

Food and Agriculture Organization (FAO)

Report on the
FAO/ITTO International Expert Meeting on Forest Fire Management
Rome, Italy, 7-9 March 2001

(IFFN No. 24 – April 2001, 78-98)

ANNEX 6

Provisional 12 Legal and Operational Checklists for Developing Forest Fire Emergency Agreements (Bilateral or Multi-lateral)

National Legislation promoting International Agreements and establishing the framework for such Agreements (This requirement may vary by country in terms of process)

An example exists between Canada and USA

An example exists between USA and Mexico

Annual Operating Plan specifying details of how to accomplish emergency assistance.

Protocols to promote technical exchanges of personnel between countries (a non-emergency assistance)

I National Legislation or Other Enabling Protocols for Establishing Contents (Elements) for Agreements:

Establish Agreements between Governments for emergency assistance if they do not exist. Determine appropriate channels for establishing Agreements. This will differ by country as how this is to be done.

Identify the Central Agency or Contact Point to coordinate the exchange of resources.

Specify Sending Party and Receiving Party.

Specify type of resources that may be sent or received.

Specify how costs will be allocated. Usually Receiving Party pays.

Specify time for reimbursements.

Specify who controls resources.

Specify how to cover losses and damages.

Specify the process for recalling resources to return them to sending party.

Specify Liability arrangements for damages (both ways). Fatal accidents, insurance, etc.

Specify qualifications of people.

Specify how to mediate disputes.

Note: Principle for success: Good will and practical solutions are essential in developing Agreements

II Checklist for Annual Operating Plan to Provide Emergency Fire Assistance (Bilaterally or Multi-laterally)

State purpose of assistance.

Cite authorities.

Detail general procedures

Who requests (how?)

Reimbursements

Identify types of resources

Personnel

Daily rate and pay

Lodging

Meals and travel

Medical costs, insurance coverage

Safety, health and welfare

Safety equipment

Who provides liaison?

Compensation claims for death and injury

Specify indemnity procedures

Equipment and supplies.

Billing and payment procedures and currencies.

Situation reporting daily.

Authorization, signatures.

Process for re-call of resources.

Customs considerations.

Resolution of logistical limitations and constraints.

Note 1: Successful emergency assistance requires careful prior planning and review.

Note 2: Elements may need to be adapted to suit the conditions existing in different countries

III Protocols for Technical Exchanges of Personnel Among Countries

Authority

Qualifications and Objectives

Requests

Procedures and Payment (loss, damage, injury)

Documentation report that evaluates the exchange

Signatures for Approval

Additional Notes:

Agreements, Operational Plans and Protocols could be to:

Provide for exchanges of technical information, not people, on a recurring basis.

Share information regarding individual serious fires to other partners.

Exchange information regarding technical support in fighting fires from private vendors who supply equipment.

Consider contract requirements for aircraft.

Determine responsibilities and opportunities for providing technical assistance to developing countries. Identify countries or organizations to provide such assistance.

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24. November 2017/by GFMCadmin

GFMC: BALTEX FIRE 2000 Conference Report (IFFN No. 24)

ecefao
BALTEX FIRE 2000
(Baltic Exercise for Fire Information and Resources Exchange)

Conference Report

(IFFN No. 24 – April 2001, p. 2-11)

1. Preface
2. Rationale

2.1 Fire in the Central-Northern European Environment
2.2 The International Nexus

3. Conference Programme

3.1 Participants
3.2 Papers Presented
3.3 Working Groups
3.4 Demonstration Exercises

4. Conference Results Recommendations of BALTEX FIRE 2000

4.1 Group I: Forest Fire Risk Assessment; Detection and Monitoring of Forest Fires
4.2 Forest Fires and Environment
4.3 Transboundary Operational Cooperation in Fire Management, Training and Technical Development

5. Immediate Actions to be Taken in the Baltic Region
6. Related Activities
7. Acknowledgements

1. Preface

Between 5 and 9 June 2000 the Baltic Exercise for Fire Information and Resources Exchange (BALTEX FIRE 2000) was held in Kuopio, Finland. BALTEX FIRE 2000 is part of an initiative devoted to strengthen cooperation in forest fire management and transboundary cooperation in large fire disasters between all countries bordering the Baltic Sea. The conference and exercise was organised and hosted by the Finnish Ministry of Interior and the Emergency Services College in Kuopio. BALTEX FIRE 2000 was arranged and co-sponsored by the several national institutions (the Finnish Forest Research Institute; the Forest and Park Service; the University of Helsinki; the Meteorological Institute and the Technical Research Center [VTT] of Finland).

The common Baltic forest fire initiative has been initiated in the mid 1990s by the UN-ECE/FAO/ILO Team of Specialists on Forest Fire which operates on behalf of the Joint UN-ECE/FAO/ILO Committee on Forest Technology, Management and Training and coordinates its work through the Global Fire Monitoring Center (GFMC).

2. Rationale

2.1 Fire in the Central-Northern European Environment

Forest fires in the region of the Baltic Basin are closely linked to modern human activities, e.g. industrialization, socio-economics (land-use change), military installations and activities (currently becoming less significant), problems arising at the forest/residential interface, and tourism. The wildfires severely threaten the valuable forest resources of the region. Some fire events cause secondary problems, such as fires in industrially polluted forests or in radioactively contaminated vegetation.

On the other hand, recognizing the role of historic natural and human-caused fires and other land-use tools in the formation of the cultural landscapes of the Baltic Basin, new concepts are arising to include fire as management tool in those landscapes, including nature conservation areas, which require periodic disturbances in order to maintain or restore biodiversity (e.g., heathlands, sub-climax forest formations).

The Baltic initiative includes all countries bordering the Baltic Sea and several observer countries. The Russian Federation is part of the Baltic Fire Initiative because it shares a long borderline with other Baltic States and owns a hinterland which represents the largest and most fire-prone forest of the world that is ecologically and socio-economically connected to the Baltic Sea region. The majority of problems concerning the expected increase of the regional fire problem due to climate change is primarily in the Russian Federation.

The nations bordering the Baltic Basin are now showing increasing interest to promote fire management systems in forests and open landscapes which need to be based on advanced fire science and technology development. The need has been recognized to create a forum in the Central-Northern European region in which the fire problems are entirely different from Southern Europe.

2.2 The International Nexus

The UN-ECE/FAO/ILO Team of Specialists on Forest Fire is promoting a cooperative approach of the nations bordering the Baltic Basin to share fire management expertise and resources. At the ECE/FAO/ILO Conference on Forest, Fire and Global Change (Russia 1996) and the First International Baltic Conference on Forest Fire (Poland 1998) the Team has proposed to set up pan-Baltic programs and exchange mechanisms encompassing fire research, fire management training, the use of prescribed fire (in forestry, nature conservation, and landscape management), and mutual fire emergency assistance.

As a consequence, the UN Fire Team established a Baltic Forest Fire Task Force which is chaired by Finland. Finland therefore was host of BALTEX FIRE 2000.

BALTEX FIRE 2000 is considered as a contribution to the Baltic 21 Action Programme which is an initiative for the application of the Agenda 21 in the Baltic Sea Region and includes the Baltic 21 Action Programme on Forests. This programme is in line with:

The UN Conference on Environment and Development UNCED (Rio 1992): Forest Principles and the Agenda 21, Chapter 11 on “Combating Deforestation and other”;

The Intergovernmental Panel on Forest (IPF, 1995-1997); and

The Ministerial Conferences on the Protection of Forests in Europe (Strasbourg 1990, Helsinki 1993, Lisbon 1998).

BALTEX FIRE 2000 was organized in line with the objectives of the UN International Strategy for Disaster Reduction (ISDR) which constitutes the follow-up arrangement of the UN International Decade for Natural Disaster Reduction (IDNDR). The meeting and exercise included the participation of an international group of wildland fire and industrial fire specialists which prepares the formation of an advisory group under the UN International Search and Rescue Advisory Group (INSARAG) scheme. This group will support the United Nations in coordinating and implementing international response to forest and other wildland fire emergencies worldwide.

3. Conference Programme

3.1 Participants

A total of 85 participants of BALTEX FIRE 2000 consisted of five invited groups:

Nations bordering the Baltic Sea (Estonia, Finland, Germany, Latvia, Lithuania, Norway, Poland, Russia, Sweden)

Observer countries (Belarus, United Kingdom)

Country members of the ECE/FAO/ILO Team of Specialists on Forest Fire (in addition to the representatives of the Baltic countries: Canada, Portugal, U.S.A.)

UN International Search and Rescue Advisory Group (INSARAG) Europe-Africa Region (Austria, Germany)

Country associated with a bilateral technical development programme of a Baltic country: Namibia

3.2 Papers Presented

Following papers were presented in thematic sessions:

Host country Finland: Opening remarks and technical reports on programmes and projects in the country (Forest fire risk assessment; fire detection by satellite; aerial fire suppression; fire behaviour)

ECE/FAO/ILO Team of Specialists on Forest Fire: Introduction, retrospective on the 1st Baltic Conference on Forest Fires

Baltic and observer countries: Official national reports (Estonia, Finland, Germany, Latvia, Lithuania, Norway, Poland, Russia, Sweden)

Prescribed burning focus: Finland, Germany, Norway

Other:

Peat fire problems (Finland)

North America (country report U.S.A.)

Fire research (Canada: The International Crownfire Modelling Experiment (ICFME); forest fires and global climate change)

Developing countries (Namibia: Integrated Forest Fire Management [IFFM])

3.3 Working Groups

Two working group sessions were organized on 8 and 9 June 2000. The aim of the working groups was to address priority areas of action concerning forest and other wildland fire issues in the Baltic region and internationally. Three groups were formed:

Forest fire risk assessment, detection and monitoring of forest fires

Forest fires and environment

Transboundary operational cooperation in fire management, training and technical development

The results of the Working Groups are presented under (4).

3.4 Demonstration Exercises

Two demonstration exercises were conducted during the conference. On 7 June a prescribed burning and forest fire suppression exercise was jointly conducted in Hyövynniemi, Heinävesi. The site consisted of an area (size: 12 ha) which was prepared for a prescribed nature conservation fire by the local Finnish Forest and Park Service. Despite the cold weather and lasting precipitation during the week preceding the exercise, favourable weather conditions on 7 June allowed a partial execution of the burn.

The second part of the field demonstration consisted of a demonstration of aerial and ground-based forest fire suppression capabilities. Aerial fire fighting was conducted by fixed-wing airplanes from Poland and Finnish helicopters using helibuckets. Fire brigades of Heinävesi and nearby municipalities as well as Russian fire brigades, supported by the Heinävesi District Police demonstrated their organizational and technical fire suppression skills at a highly professional level.

On 8 June a peat fire exercise was held in Kurkisuo, Suonenjoki, and demonstrated the fire hazards of peat production and related risk assessment, fire-fighting equipment and fire suppression. Due to heavy rains during the demonstration day the state-owned peat production company Vapo Oy, the Suonenjoki Fire Department and the Emergency Services College used smoke flares to demonstrate active fires and simulated their suppression.

4. Conference Results Recommendations of BALTEX FIRE 2000

In the following the recommendations of the three Working Groups are provided.

4.1 Group I: Forest Fire Risk Assessment; Detection and Monitoring of Forest Fires

Group I prepared a list of recommendations in the form of keywords in the field of regional Baltic forest fire risk assessment, detection and monitoring of fire. The recommendations include:

There is a need for common understanding and sharing of fire management information in the Baltic region. All Baltic countries should therefore summarize and circulate information on their national fire danger, prevention, detection and suppression systems. This could also be achieved through development of standardized country report forms (templates).

In order to develop a general understanding of variation in fire danger/risk that exists across the Region, which would facilitate better transboundary (border-crossing) cooperation in terms of both operational fire management and fire research the fire danger/risk throughout Baltic Region should be evaluated using a common fire danger system (likely the Canadian FFDRS), and post daily fire danger maps of the GFMC website. Current country systems could still be used, but a common, over-arching system should be developed, perhaps with the European Forestry Institute taking the lead, with the help of meteorological institutions and country representatives.

The development of a Baltic Region-wide land cover, vegetation, fuel classification system (or approach) would assist in converting fire danger calculations into prediction of fire behaviour for specific fuel types.

While current satellites provide valuable research information (e.g. land cover), there is a strong need to develop fire-specific satellite technology (e.g., BIRD and FOCUS of the German Center of Aeronautical and Space Research – DLR) in support of aerial and tower-based detection systems.

4.2 Forest Fires and Environment

The group prepared a list of recommendations in the form of keywords to be further explored and developed. A few explanatory remarks have been added to the list that was finally presented at the meeting.

I. The concept of “Forest and Forest Fire”

The use of the concept “forest” in the topic for the work was debated. (Forest) fire and environmental management will certainly involve important vegetation characteristics and fuel regimes that due to their successional stages cannot be precisely defined as forests, for instance different types of heathlands and other sub-climax communities. The use of different broad concepts such as “ecosystem” and “landscape type” might be evaluated in cases were more precise definitions of “forest” is difficult.

The following list of recommended fields and keywords must be further developed:

a. Scales

Any dataset, plan and management action on forest fires and the environment must be specific regarding definition of scale. Scale therefore need to be specified throughout most of the list of key words also given below. Examples:

Time

Space

Boreal

Local / regional / national

Habitat network

Population viability data.

b. Agreement on common standards

Fire regime

Fuel characteristics

Fire monitoring (incl. prescribed burning or wildfire)

Pre-planning

Fire weather

Fire effects, post-fire monitoring

Habitat types

Skills/techniques

c. Country fire history/regime

Habitat maps (EU-standards)

Fire weather/climate maps

Identification of affected and non-affected species and habitats

Current resource use

Fire frequency.

d. Identification of information gaps

It is essential to explore the process at any stage to identify where information might be lacking.

e. Country vision statement

Each country is recommended to write down their visions for the theme of forest fire and environment to create overall objectives for the planning and implementation process.

f. Country fire management strategy

To create detailed objectives to support the development of country fire policies, and action plans, including:

Biodiversity plans

Smoke management

Regulation and laws

g. Education/ Information

Several basic questions need to be addressed, e.g., the clarification of

Responsibilities

Methodologies and procedures

Format of a supportive network.

Methods of conflict resolution, e.g., National, regional, and local Round Tables on Fire Management in which all stakeholders will be involved

h. Training

Training is a key aspect of any future regional fire programme. Training will encompass formal training of researchers in

Fire ecology

Wildfire management

Application of prescribed fire

Multidiscipline activity

Fire research

i. Evaluation

The many research data set, plans and management actions needed will require a competent group that can evaluate efficiency and outputs from the process.

II. Country “Action Plans“

Due to the broad range of issues and multi-faceted nature of (forest) fire and the environment each country is recommended first to develop a specific Action Plan which contain a list of elements or objectives. For each of the objectives an action plan (descriptive) and an implementation time scale must be given. The elements of the action plan should be priority ranked.

4.3 Transboundary Operational Cooperation in Fire Management, Training and Technical Development

This group discussion was driven by the previous activities of the UN-ECE/FAO/ILO Team of Specialists on Forest Fire and the initiative to establish a Wildland Fire Subgroup within the UN International Search and Rescue Advisory Group (INSARAG) Europe-Africa Region. The aim of the discussion was to further develop the efficiency and mechanisms of international cooperation in fire management, training and technical development.

Until recently the mandate of the International Search and Rescue Advisory Group (INSARAG) of the United Nations had been restricted to the “classical” SAR cases such as saving lives after earthquakes. However, experience has shown that secondary effects of natural and technogenic disasters require additional specialist advice in conjunction with SAR response and other humanitarian aid missions. The INSARAG family offers an appropriate structure.

At the regional INSARAG Europe-Africa meeting in December 1999 (Germany) a first proposal was elaborated to establish an INSARAG Fire Group consisting of three elements:

Wildland Fire

Hazardous Materials (Hazmat)

Industrial Fire

At a meeting at the UN Office for the Coordination of Humanitarian Affairs (UN-OCHA) in January 2000 it was agreed that the original mandate of INSARAG which in addition to search and rescue would also cover wider aspects of disaster/emergency response. This could include a variety of natural and human-made disasters, including wildland fires. INSARAG would assist in strengthening UN-OCHA’s role by:

governmental experts advisory support in case of a major emergency

advisory experts to be provided out of the INSARAG family covering many fields of disaster relief

At the foundation meeting of INSARAG Fire it was recommended:

INSARAG-Fire is a global network of specialists in dealing with industrial fire, wildland fire and HAZMAT incidents affecting populations and the environment

INSARAG-Fire is organized in regional nodes

INSARAG-Fire has been initiated by a Starting Core Group of INSARAG Europe-Africa and will seek the establishment of Fire groups in the INSARAG Americas and Asia-Pacific regions.

Activation of involvement of existing international structures by calling on wildland fire expertise of international organizations and individuals already in place will be coordinated through the Global Fire Monitoring Center (GFMC) network

Encourage a continuous exchange of information through the Internet, initially utilizing the GFMC network

At BALTEX FIRE 2000 the meeting of the FAO/ECE/ILO Fire Team further elaborated on the formation of the INSARAG Fire Group and particularly on the Subgroup Wildland Fire. The final format of INSARAG Wildland Fire will be submitted to the next INSARAG Europe Africa Regional Meeting (Tunisia, November 2000).

The BALTEX FIRE 2000 recommendations for INSARAG Europe-Africa include:

a. Establishment of a Database

For the Europe-Africa Region a database should be developed on the base of circulated questionnaires which include information on:

Human resources for

Assessment of fire situations

Technical assistance

Fire fighting

It was stressed that fire specialists to be selected for deployment to international wildland fire emergency situations should be experienced or at least trained to work in national to local conditions of the recipient country (see recommendation [b]).

Equipment

Hardware and software for use in international emergency assistance operations (including national to regional fire equipment warehouses)

Availability and mobility of equipment (time, space) The need was underscored to observe and improve technical compatibility of equipment.

Information sources

Provider of data (real-time, near-real time) for fire situations, e.g. fire reconnaissance (from air and space), fire-weather or -danger forecasts, environmental and socio-economic conditions, etc.

b. International Fire Management Training Courses

The need is recognized to train fire management specialists to be used in international response groups. Training programmes still need to be defined but should certainly include elements which would prepare these specialists to foreign situations such as the specific conditions of a target nation or region, e.g.

natural fire environment (fuels, fire characteristics, fire behaviour);

geographic conditions (topography, water sources)

climate and weather (typical fire weather, local particularities such as wind patterns)

socio-cultural conditions (land-use systems, fire use, involvement of land users or the public in fire management activities, public response to foreign intervention, limitations of use of advanced technologies)

infrastructures and technical facilities (fire fighting resources)

policies and administrative settings and policies in place (legal framework, law enforcement, responsibilities of agencies, role and capabilities of NGOs)

information sources (provider of national to local real-time or near-real time data needed for fire situations assessments, e.g. fire aerial and spaceborne fire reconnaissance, fire-weather or -danger forecasts)

The training programme should include a link to the UN-OCHA / UNDAC system through which wildland fire specialists would be prepared to become candidate members for UNDAC missions in wildland fire emergencies.

International certificates should be issued in order to guarantee the competence and quality of fire management specialists deployed to international tasks.

Figure 1. The BALTEX FIRE 2000 forest fire management exercise began with a prescribed burning experiment conducted by the Forest of Finland, the Park Service and the Forest Research Institute. The objectives of the prescribed fire included improvement of forest site conditions, biodiversity enhancement and an exercise for certification burning.

Figure 2. In the second part of the forest fire management exercise several municipal fire departments, the police, the National Border Guard, and fire-fighting forces of neighbour countries Poland an Russia showed their high spirit of cooperation by sending ground and aerial fire fighting forces.

Figure 3. The Finnish coordinator of BALTEX FIRE 2000 and head of the Regional Baltic Focus of the UN-ECE/FAO/ILO Team of Specialists on Forest Fire, Mr. Harry Frelander, in a TV interview at the edge of the fire exercise. Photos: Global Fire Monitoring Center (GFMC).

c. Utilization of the Existing GFMC Network for Building the Coordination Process

The existing forest fire network organized under the ECE/FAO/ILO Team of Specialists on Forest Fire and the Global Fire Monitoring Center should be used for further strengthening the regional Baltic to global collaborative process and coordinative efforts.

The establishment of a link to UN-OCHA and the INSARAG Secretariat must be secured. The role of the GFMC as facilitating and supporting instrument for UN-OCHA and the INSARAG Secretariat in wildland fire questions must be clarified.

5. Immediate Actions to be Taken in the Baltic Region

The final discussion of the BALTEX FIRE 2000 plenary and the subsequent meeting of the ECE/FAO/ILO Team of Specialists on Forest Fire and the INSARAG Fire Group fully supported the recommendations of the three Working Groups.

The following short- to medium-term steps will be taken:

Establishment of a special Website on the Baltic Region on the Homepage of the GFMC

Design of a comprehensive and standardized format of a country profile in which the Baltic Region countries fully describe the basics on the fire situation in the country and the available fire-fighting resources for national, transboundary and international forest fire fighting, including contact numbers

Distribution of the country profile questionnaire to the governments; subsequent placement of country profiles on the website

Establishment of links and extraction of existing open internet and intranet websites which are currently constructed, e.g. in Finland (fire danger rating system, automatic regional fire detection system), Russia (fire information system), and Germany (GIS-based Fire Information System for the State of Brandenburg: integration of data and information from an automatic ground-based fire detection system, fire danger rating, and fire behaviour modeling)

Publication of the national reports presented at BALTEX FIRE 2000 in the pages of UN-ECE/FAO International Forest Fire News (IFFN)

Exploration of host countries and conveners for working group activities and the next BALTEX FIRE (possibly 2002)

Conduct a first INSARAG Wildland Fire short introductory course in 2001; Finland has offered to investigate the possibility to host such a seminar.

6. Related Activities

The FAO/ECE/ILO Team of Specialists on Forest Fire recommended to follow up its activities in other countries of the ECE region. A meeting in the Southeast of the ECE region would be a logic continuation of a series of activities that had been initiated by topic- or region-focussed seminars, such as the meetings:

Fire Suppression Technologies (Poland 1981)

Fire Prevention (Spain 1986)

The Socio-Economic Environment of Fire (Greece 1991)

Forest, Fire, and Global Change (Russian Federation 1996)

The First Baltic Conference on Forest Fires (Poland 1998)

The Baltic Exercise on Fire Information and Resources Exchange – BALTEX FIRE 2000 (Finland 2000)

At BALTEX FIRE 2000 it was discussed to direct the attention of the next seminar on the Eastern part of the Mediterranean Basin and its adjoining regions which have not yet been addressed by the FAO/ECE/ILO Team of Specialists on Forest Fire. The target region will include countries East of the Balkans, Turkey, the Near East and the central Asian ECE member states and those countries not being member of the ECE but bordering them in Central Asia, e.g. Mongolia and China.

Several reasons support this idea. First, the post-war situation in the Balkan countries as well as the South Eastern European countries which are still in transition, have not participated in recent activities of the Team and other international projects and programmes. This also refers to the neighbours of Turkey, such as the Kaukasus states, Iran, and furthermore Turkmenistan, Usbekistan, and Kazakhstan.

From the point of view of the Fire Team and the Global Fire Monitoring Center (GFMC) which coordinates the work of the team, these countries deserve full attention and support to bring them into the family of international community of forest fire scientists, managers and policy makers.

Turkey is situated in a strategically important place in the region. It was recommended that Turkey could be an excellent place in the Eastern Mediterranean region where the ecological and cultural influences of the countries mentioned above are meeting anyway. This makes Turkey ideal for convening a meeting of the mentioned forest fire community.

Thus, a possible conference to be organized in 2002 could be entitled tentatively:

“Forest Fire in the Eastern Mediterranean, Balkans and adjoining Regions of the Near East and Central Asia”.

It was recommended to approach the Forest Service of Turkey and suggest Turkey to host this conference.

7. Acknowledgments

On behalf of the participants of BALTEX FIRE 2000, the Joint UN-ECE/FAO/ILO Committee on Forest Technology, Management and Training, and the new INSARAG initiative the leader of the UN-ECE/FAO/ILO Team of Specialists on Forest Fire congratulated and thanked the government of Finland for hosting and generously financing the conference and exercise. Particular thanks were given to the staff of the Ministry of Interior and the Emergency Services College in Kuopio which proved high organizational skills, excellent conference facilities and well prepared field demonstrations. The engaged coordination with several municipal fire departments, the police, the National Border Guard, the Finnish Forest Research Institute and the Forest and Park Service in the field exercise activities were well visible. The neighbour countries Poland an Russia showed their high spirit of cooperation by sending ground and aerial fire fighting forces.

In his final statements he elaborated on the good spirit of the regional Baltic discussion and the willingness to come to a consensus concerning future collaboration in forest fire research, development and transboundary support in emergencies.

He also underscored the importance of the first joint meeting of the ECE/FAO/ILO Team of Specialists on Forest Fire and the INSARAG Fire Group and envisaged a strong common future action programme.

Contact Address

Johann G. Goldammer
Leader, UN-ECE/FAO/ILO Team of Specialists on Forest Fire
and Global Fire Monitoring Center (GFMC)
Fire Ecology Research Group, c/o Freiburg University
PO Box, D-79085 Freiburg, GERMANY

| IFFN No. 24 | Specials | Retrospectives ]

24. November 2017/by GFMCadmin

News from ECE/FAO: UN FAO/ECE/ILO Team of Specialists on Forest Fire Minutes of the Meeting, Warsaw, Poland, 9 May 1998

ecefao

News from ECE/FAO:

UN FAO/ECE/ILO
Team of Specialists on Forest Fire Minutes of the Meeting

Warsaw, Poland, 9 May 1998

(IFFN No. 19 – September 1998,p. 88-93)

The meeting was held in conjunction with the First Baltic Conference on Forest Fires, Poland, 4-8 May 1998

Introduction

As agreed by the 13th session of the Steering Committee of the Joint FAO/ECE/ILO Committee on Forest Technology, Management and Training, the Team of Specialists on Forest Fire co-sponsored the First Baltic Conference on Forest Fires, Poland, 4-8 May 1998. The objectives and recommendations of the conference are summarized in ANNEX I. The Team leader took the opportunity to invite the team for a satellite meeting held one day after the conference.

1. Report of the Team Leader, Mr. J.G.Goldammer

1.1 The 1997-98 fire and smoke episode

The team leader reported about the significant fire and smoke episode of 1997-98 in South East Asia and South America. The January 1998 issue of International Forest Fire News (IFFN) describes in detail the views of parties involved in SE Asia. The July issue will further continue in analyzing the situation in SE Asia and will add contributions from Brazil and Central America.

It was agreed by the team members that in general the international media, public, and politics need to be informed more precisely on the reasons of burning and smoke emissions because most of the international response to the crisis addressed the wrong causative complex.

The issue no. 18 of IFFN was unusually comprehensive due to the events in SE Asia and the preparation of the First Baltic Conference on Forest Fires. Including the two regions with an extended “Special” section in IFFN was on purpose. The editor intended to highlight the fact that fire and smoke are expression of land use and land-use changes. The SE Asian and the Baltic Regions differ from eachother entirely, but have in common a phase of intensive fire utilization – historically in the Baltic Basin, currently in SE Asia.

Regional border-crossing (transboundary) problems (fire, smoke) and mechanisms to jointly overcome these problems by mutual research, development and assistance programmes are also common in the two regions. The mechanisms addressing transboundary pollution in the ECE region and the EU may provide guidance to similar mechanisms to be established the ASEAN region. The team will follow up this development. The next event will be the “Asia-Pacific Regional Workshop on Transboundary Pollution, Singapore, 27-28 May 1998” organized by the Germany-Singapore Environmental Technology Agency in which the ECE experience in transboundary air pollution will be presented by various speakers; the team leader will report about common transboundary issues related to fire and haze in the ECE and the ASEAN region.

1.2 International Forest Fire News (IFFN)

IFFN is receiving new sponsorship. Starting in 1998, the US Bureau of Land Management (BLM) has begun to financially sponsor the production of IFFN by granting 4000 US-Dollars per year. The funds go directly to the editorial office (home office of the team leader) and are used for the camera-ready production of IFFN.

On behalf of the Joint Committee, the Team of Specialists and the international readers the team leader and editor once again expressed his gratitude to the representative of the BLM in the team meeting, Mr. Edward Shepard.

IFFN will continue to actively contribute to ECE-wide and global efforts in building strong partnerships in fire-related issues at all levels of research, management, and policy development. The details of the activities of the team, including the results of the FAO/ECE Seminar “Forest, Fire, and Global Change” (Russia, 1996) and the International Fire Conference “Wildland Fire ’97” (Canada, 1997), which was supported by the team, are reported in detail in the pages of IFFN. The recommendations of both conferences are attached in ANNEXES II and III.

1.3 Link of the Team’s work with international organizations and programmes (IDNDR, ITTO, FAO, WMO, WHO, UNEP)

The team leader explained in detail the relationship of the team’s activities within and outside the ECE region:

1.3.1 International Decade for Natural Disaster Reduction (IDNDR)

Close links were established to the IDNDR Secretariat in Geneva. In July 1997 the team leader was entrusted with the formation of a Working Group “Fire and Related Environmental Hazards” of the IDNDR Early Warning Programme. The recommendations of the report which was submitted to IDNDR in 1997 were incorporated into the Report of the UN Secretary General “Improved effectiveness of early-warning systems with regard to natural and similar disasters”; the full text of the Working Group Report will be released by IDNDR within the next few weeks. The report will be presented at the IDNDR “Early Warning Conference 98” (EWC98) in Potsdam (September 1998) during which the team leader will convene a session on Environmental and Technological hazards.

Team members involved in the preparation of the report were Mr. Goldammer (team leader, Germany), Mr.B.Stocks (Canada), and Mr.M.Fosberg (IGBP-USA/Germany).

The IDNDR activities are also linked to the activities of the Disaster Management Support Project of the Committee on Earth Observation Satellite (CEOS) and the proposed Global Disaster Information Network (GDIN).

The German Ministry of Foreign Affairs through its IDNDR funds confirmed its decision to provide the home institute of the team leader with funds to establish a “Unit for Monitoring Climate Variability, Fire, Smoke and International Response in South East Asia” (tentative designation / tasks of the unit), starting 1 June 1998. This IDNDR contribution may have significant chances to further expand its terms of reference towards a “Global Fire Monitoring Unit” (see topic 4 of team session).

1.3.2 International Tropical Timber Organization (ITTO)

In 1997 the ITTO published the “ITTO Guidelines on Fire Management in Tropical Forests” (ITTO Policy Development Series No. 6). The team leader acted as senior author to the basic document which entered the final version of the guidelines prepared by an international panel; and adopted and released by the ITTC. The guidelines for the first time provide a general framework for fire policy and management development. They encourage fine tuning of guidelines at regional and national levels. While the guidelines provide a clear focus on the tropical and subtropical world, they are exemplary for other vegetation zones.

Indonesia was the first country which received assistance by ITTO and other donors to develop national guidelines, a project which is in the final stage at present and was supported by the team. It is expected that Namibia will be the next country which will create a national round table and go into a similar process of developing a national fire programme.

1.3.3 Food and Agriculture Organization (FAO)

The cooperation between FAO and the team was discussed the head of the Forestry Department, FAO Assistant Director General M. Hosny El-Lakany, in Geneva during the UNEP Fire Response Coordination meeting (20-21 April 1998; see topic 1.3.6). It was agreed to further strengthen the cooperation in the field of fire. FAO intends to call for an expert meeting on fire in October 1998, and the team is ready to support the meeting if requested. From the point of view of the team it will be most important to come to an agreement on a procedure for collecting global fire data in the frame of the Global Forest Resources Assessment (see topic 3 on Global Fire Statistics).

1.3.4 World Meteorological Organization (WMO)

As a consequence of the South East Asian fire episode the WMO is calling for a Workshop on Regional Transboundary Smoke and Haze in South-East Asia (2-5 June 1998, Singapore). The workshop is one element of WMO’s efforts to enhance the capacity and capability of National Hydrometeorological and Meteorological Services (NMHSs) in South-East Asia to monitor and model smoke and haze episodes and the long range transport of anthropogenic pollutants, and to improve the NMHS’s abilities to advise, alert, and generally manage these pollution events. This will involve review and discussion of regional plans such as the WMO-PARTS (Program to Address ASEAN Regional Transboundary Smoke). Through the participation of the team it is envisaged to contribute the expertise gained from research and development in the fire sector in the SE Asian region and to propose to include the South East Asian Fire Experiment (SEAFIRE) of the International Geosphere-Biosphere Programme (IGBP) as a joint UN-WMO/IGBP activity in exploring the role of fire in regional and global atmospheric processes. The IGBP-SEAFIRE is coordinated by the team leader.

1.3.5 World Health Organization (WHO)

The recurrence of transboundary smoke originating from land-use fires and wildfires is cause of acute and long-term respiratory health problems and requires the development of a comprehensive strategy based on broad international consensus. As a consequence of the recent smoke episodes the WHO is convening a small group of high-level experts to develop “Guidelines for Forest Fire Emergencies”. The workshop will take place in Lima (Peru), August 1998. The team leader will support the WHO in preparing the guidelines.

1.3.6 UNEP

The team also supported the UNEP Meeting “Coordination UN Response to Indonesian Fires”, 20-21 April 1998, Geneva. The following team members participated: Mr. E. Davidenko (Russia), Mr.J.G.Goldammer (team leader), Mr. B. Stocks (Canada), and Mr. R. Vélez (Spain). The meeting involved officials from various UN agencies (e.g., OCHA, UNEP, FAO, WMO, WHO), fire management experts, NGO’s, and – in the final part – the donor community. One result of the meeting was the design of an internationally supported fire disaster response (fire control campaign) aimed to suppress the wildfires that had started to spread during the second phase of the drought in early 1998, mainly in East Kalimantan.

Before the beginning and after the Geneva planning meeting the team leader communicated with the Executive Director General of UNEP, Dr.K.Töpfer, in order to express their views on the current and long-term fire and smoke issues in the SE Asian region and elsewhere.

The team leader has offered to the UNEP Executive Director General to further support UNEP in the important task of coordinating the UN response.

1.3.7 Other

During the “Wildland Fire 1997” conference in Vancouver the team, represented by the team lader and Mr. J. Najera (UN-ECE Trade Division, Timber Section) for the first time officially met with the representatives of the North American Forestry Commission, Fire Management Study Group (NAFC-FMSG).

As a result of the meeting the NAFC-FMSG endorsed the recommendations which came out of the UN FAO/ECE Seminar on Forest, Fire, and Global Change, held in Shushenskoe, Russia 1996. The letter of endorsement was signed by Ms. Mary Jo Lavin (USA, chair of the FMSG) and the representatives of Canada (Mr. A. Simard) and Mexico (Mr. O. Cedeno).

In order to further strengthen the cooperation the team leader invited NAFC-FMSG to join the International Forest Fire News as a co-sponsor. Basically this would allow the Study Group to publish their reports without creating an own newsletter and avoid overlapping publication activities on North America. This invitation was formally transmitted by letter on 11 July 1997, and the NAFC-FMSG was also invited to the team meeting in Poland. So far there was no response on this invitation.

With the help of Mr. Najera, the team also intensified the dialogue with the DG VI of the European Commission (Ms. M. Lemasson, DG VI.F.II.2) on joint issues in collection of forest fire statistical data (see also topic 3).

2. Evaluation of the results of the First Baltic Conference on Forest Fires and its relevance to the Baltic 21 Action Programme on Forests

The objectives of the First Baltic Conference on Forest Fires are given in ANNEX I. The team leader took the opportunity to express the gratitude to the government of Poland to host the conference and the organizers of the meeting, the Forest Research Institute, Department of Forest Fire Prevention, Warsaw.

Besides the presentation of papers from the Baltic region the conference focus was the contribution of forest fire management to the Baltic 21 Action Programme. The conference participants agreed to develop a concerted regional Baltic Forest Fire Action Plan. This was reflected in the recommendations of the seminar which are given in ANNEX I.

A follow-up process to the conference was agreed, starting with a pan-Baltic forest fire exercise BALTEX FIRE 2000 (the Baltic Exercise in Forest Fire Information and Resources Exchange) to be held in Finland in 2000 (see new terms of reference of the team [para 5]).

A controversial debate was held on the applicability of prescribed fire in vegetation management. The discussion revealed that there was no common and equal state of knowledge in some Baltic countries on fire ecology and the use of prescribed fire in forest and landscape management and in nature conservation. It was recommended that the team of specialists should organize a seminar on fire ecology and prescribed burning in the countries neighbouring the Baltic Sea.

It must be stated at this point, however, that one of the objectives of the First Baltic Conference on Forest Fires originally intended to elaborate on this topic. The absence of those speakers which had been invited to the conference to present papers on the history and use of fire left a gap which must be filled by a follow-up activity.

3. Global Fire Statistics

The UN-FAO/ECE/ILO Seminar “Forest, Fire and Global Change” (Russia, 1996) recommended to introduce an internationally standardized system of collecting and reporting statistical fire data. This recommendation was based on the fact that at present only few countries provide fire statistics which are useful for an international evaluation of the ecological, environmental and economic impacts of fire. Existing fire reporting systems such as the European Decentralized Database on Forest Fires which was created in accordance with the Resolution S3 of the Ministerial Conference at Strasbourg, the ECE/FAO Forest Fire Statistics, or the data collection proposed by the FAO as part of the Global Forest Resources Assessment, are of limited use for evaluating wildland fires at global scale.

While the European Decentralized Database with its “common core” of parameters (“socle minimum”) provides very specific information on the performance of fire services, this common core and most other data collection systems are not specifying the forest and other vegetation types affected by fire.

The team recommended to introduce a data collection system which had been developed for the Global Vegetation Fire Inventory (GFVI) some years ago. The required input parameters will raise the awareness of governments concerned about the multitude of fire types involved in land-uses systems, fire-dependent or fire-tolerant vegetation, and in those forests and other vegetation types in which fire has destructive or destabilizing effects.

In ANNEX II (not enclosed here) a proposed new statistical data reporting form, which was developed from the original GVFI form, is presented. This form should be a base of a consensus agreement, possibly at the FAO fire expert meeting in late 1998.

4. Creation of a Global Fire Monitoring Facility

Following the recommendations of the UN-FAO/ECE/ILO Seminar “Forest, Fire and Global Change” (Russia, 1996) and the ITTO “Guidelines on Fire Management in Tropical Forests” and considering the events of 1997-98 in SE Asia and other parts of the world the team strongly underscored the need to establish a Global Fire Monitoring Facility (GFMF). GFMF would process and publicly provide all information on fire and related to fire which would enable governments, international organizations and agreements, scientists and, through the media, the general public to understand fire and to respond appropriately.

As a consequence of these recommendations the government of Germany in May 1998 indicated to establish a Fire Monitoring Center which could serve as precursor to GFMF. This Fire Monitoring Center has been established as an activity of the IDNDR and is based at the Fire Ecology Research Group in Freiburg (Germany). It will become operational in August 1998. In its first phase it will have a focus on SE Asia and offer a test platform for global cooperation fire-related issues.

5. Future work contents of the Team

Following new terms of reference were agreed:

i. Baltic Focus

As a consequence of the First Baltic Conference on Forest Fires it was agreed to establish a Baltic focus activity. The team members which belong to the countries neighbouring the Baltic Sea, hereinafter referred to as Baltic States, will be members of a Baltic Task Force on Forest Fire. At present the following countries are Task Force members: Estonia, Finland, Germany, Latvia, Poland, and Russia. It is still hoped that the remaining Baltic countries (Denmark, Lithuania, Norway and Sweden) will show interest in the work of the Task Force as further activities will develop. It was also agreed that the three following countries will have an observer status because their are either directly connected to the Baltic region or share common problems or developments in fire management:

Belarus, The Netherlands, and the United Kingdom

Task Force leader for the next two years will be Mr. Harry Frelander (Finland) who is exploring currently to host BALTEX FIRE 2000 in Finland. BALTEX FIRE 2000 will be the first pan-Baltic exercise in sharing transboundary information and resources in forest fire management.

ii. Fire in radioactively contaminated regions

From the reports from Belarus and Russia it was concluded that it will be necessary to create a focus on fire research and management in those radioactively contaminated regions which are bordering the Baltic region. This activity follows the recommendations of the UN-FAO/ECE/ILO Seminar “Forest, Fire and Global Change” (Russia, 1996).

It is recommended that the Joint Committee follows this proposal by supporting a seminar to be conducted jointly by the Team of Specialists on “Forest Fire” and the Team of Specialists on “Problems in the Forestry and Forest Industry Sector Arising from Radiation Contamination, Particularly from the Chernobyl Disaster”.

iii. Global fire statistics

The team will further continue to work with UN organizations, primarily with FAO, to develop an appropriate global fire data collection system.

iv. Global fire monitoring

Through the Fire Monitoring Center established by German IDNDR funds and based at the research institute of the team leader, the team will continue to develop the concept of a Global Fire Monitoring Facility.

v. Wildland Fire Management Glossary

The revision, update and publication of the FAO Wildland Fire Management Terminology (FAO Forestry Paper 70, 1986) has been stagnating due to limited funding. Based on the progress of the last two years (entering the contents of the current glossary on diskettes, first reviews of the current glossary by correspondents) the team should continue in updating the glossary.

The previous goal of the update and publication procedure should be revised. It is envisaged now to put the glossary on CD-ROM in addition to printing. This would also ease to gradually add more languages.

The FAO or other donors are kindly requested to provide funding for editorial and technical work to finalize the glossary update.

Freiburg, Germany, 22 May 1998 Johann G. Goldammer
Leader, FAO/ECE/ILO Team of Specialists on Forest Fire

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