FAO is recognized for initiating a timely follow-up to the Expert Meeting on Forest Fires that was held in Rome, Italy, 7-9 March 2001. This report is a result of that follow-up to ensure that recommendations of the Fire Experts were given immediate attention through the development of an action plan. Also, sincere appreciation is extended to the Fire Experts who provided substantial assistance during the follow-up process by giving feedback on priorities, providing additional examples of International Fire Agreements, and furnishing other technical support.
FAO Representatives in numerous Member countries were especially helpful in quickly responding to an FAO request to identify additional International Fire Agreements that might be available. Although there were not many examples that surfaced during this country-by-country survey, the survey process served to elevate awareness of the importance of International Fire Agreements as a basis for cooperation during emergencies.
Staff at FAO Headquarters in Rome provided crucial direction, leadership, and technical support during the follow-up work that took place in June and July 2001, including Mr Sène, Ali Mekouar, Gillian Allard, and Manuel Paveri. We extend our heartfelt thanks to all of you.
As always, Graciela Andrade worked efficiently behind the scenes to make sure that numerous administrative details were handled in a timely manner. Her friendly assistance is sincerely appreciated. Also, we would like to acknowledge the helpful support of Maria Amatiste Cardelli who always ensured that all of our office needs were accommodated. In addition, we want to thank Anne Branthomme and Patrizia Pugliese for their technical support.
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 to develop regional and bilateral Agreements in forest fire management. In addition, the Minister of Agriculture in Greece requested FAO in late 2000 to host a meeting whereby international fire experts would explore opportunities to improve mechanisms for international cooperation in fire emergencies.
The participants at the Expert Meeting on Fire Management identified 25 Recommendations that were intended to improve fire management cooperation among countries. The recommendations were directed to FAO, ITTO, other international organizations, and national institutions1 for future consideration and action. Participants concluded at the end of the meeting that the Recommendations should be prioritized so that an action plan could be developed. The Fifteenth Session of the Committee of Forestry (COFO) was briefed on the results of the Expert Meeting on Fire Management during their mid-March meeting in Rome. The Committee took note of the important conclusions and recommendations of the fire meeting, and urged that FAO take follow-up action to support efforts in fire management.
FAO arranged in June and July 2001 for a Legal Intern and a Fire Management Consultant to determine priority activities, acquire examples of additional International Fire Agreements, develop guidelines for the development of future bi-lateral or regional Agreements, and prepare an action plan.
There were only a few examples of International Fire Agreements available for review at the Expert Meeting on Forest Fires in March 2001. Because of the follow-up in June and July, there is now an inventory of about 14 International Fire Agreements and several annual operating plans. Additional Agreements were provided by members of FAO's International Fire Management Network (IFMN) and by FAO Representatives in Member countries.
These documents were analysed to determine similarities in content. Based on this analysis, a list of Frequently Asked Questions pertaining to Agreements was developed and circulated to the IFMN. In addition, guidance for developing Agreements was outlined to assist others with the process of Agreement formulation.
Since most of the Agreements that were analyzed documented procedures to be followed when one country provides emergency fire suppression assistance to another country, the term International Fire Agreements is used as a general descriptor in the report. Some Agreements, however, like the one between Indonesia and Malaysia, are broader in scope and pertain to overall natural disaster assistance.
An Action Plan for 19 priority recommendations was developed for consideration and future action by FAO, Member countries, and collaborating organizations.
CILSS Permanent Interstate Committee for Drought Control in the Sahel
COFO FAO Committee on Forestry
CPF Collaborative Partnership on Forests
ECE Economic Commission for Europe
FAO Food and Agriculture Organization of the United Nations
FAQs Frequently Asked Questions
FONP FAOs Forestry Policy and Institutions Branch
FORM FAOs Forest Resources Development Service
FRA Forest Resources Assessment (coordinated by FAO)
GFMC Global Fire Monitoring Center
IFMN International Fire Management Network
INSARAG UN International Search and Rescue Advisory Group
ISDR International Strategy for Disaster Reduction
ITTO International Tropical Timber Organization
IUCN World Conservation Union
LEGN FAOs Legal Department
OCHA Organization for the Coordination of Human Affairs
OFDA Office of Foreign Disaster Assistance (U.S.)
SADC Southern Africa Development Community
UNEP United Nations Environment Programme
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 (See Annex 1 for a list of participants).
The meeting was a follow-up to the FAO meeting on Public Policies Affecting Forest Fires, held in Rome in October 1998. This Public Policies meeting identified the need to develop 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 strengthen technical cooperation among developing countries. Also, the Minister of Agriculture in Greece in late 2000 requested that FAO sponsor a meeting to explore opportunities for the development of International Fire Agreements, so that countries could better assist each other during times of fire emergencies.
The specific objectives of the March 2001 Expert Meeting were to:
The participants at the Expert Meeting on Fire Management identified 25 Recommendations that were developed in response to the stated objectives listed above. The recommendations were directed to FAO, ITTO, other international organizations, and national institutions2 for future consideration and action.
Participants concluded at the end of the meeting that the Recommendations should be prioritized. Although there was some concern expressed that it might be difficult to prioritize the recommendations due to a variety of reasons, the Terms of Reference for the meeting follow-up clearly called for reviewing and responding to priority activities:
"Under the overall direction of the Director of the Forest Resources Division, Chiefs FORM, FONP and LEGN, and direct supervision of Senior Forestry Officer (Plantations and Protection) and Forestry Officer (Forest Protection), the consultant will review and respond to priority activities identified in the recommendations of the FAO/ITTO International Expert Meeting on Forest Fires held in Rome 7-9 March 2001."
To ensure early follow-up to the Recommendations of the Expert Meeting, FAO engaged a Legal Intern and Fire Management Consultant to work in Rome in June and July 2001. They were asked to prioritize the meeting recommendations, acquire additional Agreements, analyze the common elements of Agreements, and propose a plan of action (See Annexes 2 and 3 for their Terms of Reference). This report presents these results along with detailed supporting Annexes.
The Expert Meeting participants requested FAO, ITTO and collaborating agencies to support action as set out in the recommendations. Fire Experts at the meeting unanimously concluded before adjournment that these recommendations should be prioritized later, so that efforts could be concentrated on accomplishing the most important, or feasible, recommendations first.
Preferences were aggregated and recommendations ranked in descending order. Participants were informed of the final results. These priorities for the Meeting Recommendations reflect the preferences of the Fire Experts and may not necessarily be indicative of fire management priorities of FAO or other organizations.
Based on the above, the consultants classified and prioritised the recommendations as shown below. The corresponding recommendation number from the Report on the FAO/ITTO International Expert Meeting on Forest Fire Management, March 2001 is highlighted in each case, e.g. Ref. 36 i:
1. - continue to actively participate in relevant, existing initiatives and mechanisms such as the Inter-Agency Task Force Working Group on Wildland Fire of the International Strategy for Disaster Reduction (ISDR)3; the United Nations International Search and Rescue Advisory Group (INSARAG)4; the Joint United Nations OCHA/UNEP Environment Unit5. FAO should also continue collaboration with organizations such as the Global Fire Monitoring Centre (GFMC), and support the development of joint programmes. Information and outputs from such work should feed into fora such as FAO's Committee on Forestry (COFO), the International Tropical Timber Council (ITTC) of the ITTO, and the Collaborative Partnership on Forests (CPF) 6 and the UN Forum on Forests (UNFF). (ref. para 36 (i))
2. - intensify action to facilitate networking and collaboration between countries through identifying or creating national focal points ( (ref. para 33 (i))
3. - support the preparation of country profiles to provide international collaborators and donors with an insight into institutional set-up and operational responsibilities of these countries at national level, as well as basic information without which outside assistance will not be effective or even possible. Aspects covered in such country profiles should include reference to: political will, governance, security, socio-economic conditions, climate, vegetation, demography, available resources in personnel, equipment, funds, information, and infrastructure (ref. para 34 (iv))
4. - advise on, and support the development of emergency response agreements, bilaterally and multilaterally (at regional or global levels, as appropriate); while details of such agreements will vary depending on considerations that may vary from region to region key components should be outlined in support of such action (ref. para 35 (i))
5. - support countries to improve capacity and capability to prepare for forest fires, with special reference to those countries that have identified gaps in attributes such as legislation, policy, planning, practices and monitoring (ref. para 33 (iv))
6. - catalyze and support action through providing technical assistance and advice to member countries in the development of emergency response agreements (ref. para 33 (v))
7. - strengthen human and non-staff resources to respond to increasing requests for support in forest fire management (ref. para 33 (vi))
8. - establish or support the establishment or strengthening of an international forest fire information centre to facilitate the sharing of world-wide information among all partners regarding such issues as emergency response agreements, resource availability and equipment; and to help facilitate contacts at regional, eco-regional, global levels. This centre should provide real-time situation reports and information on forest fire conditions and activities. The centre should be institutionalised in order to fully realise its role. (ref. para 34 (v))
9. - support activities that bring local people, professionals and policy makers together and build awareness and capacity (ref. para 32(ii))
10. - provide information and technical support to enhance the sustainable management of forest resources that include fire prevention measures as an integral part of such action (ref. para 33 (iii))
11. - develop a data standard within the framework of the FAO coordinated Forest Resources Assessment programme to address the requirements of national and international forest fire management reporting needs (ref. para 34 (ii))
It is recommended that FAO:
12. - 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 management, training, public awareness, institutional arrangements (ref. para 34 (iii))
13. - encourage forest fire management cooperation among countries, and catalyze and support the development of additional emergency response agreements; full use should be made of already existing regional and other mechanisms, such as those operational in the CILSS, SADC, Mediterranean, Baltic, South-East Asia, Central America, Caribbean, South America and other regions (to be identified). (ref. para 35 (ii))
14. - activate a task force to track and monitor progress in the development of emergency response agreements and collaboration, and to develop a detailed action plan that defines timeframes, responsibilities and costs to implement the recommendations of the International Expert Meeting by the various international, regional and national organizations concerned (ref. para 35 (iv))
15. - make information available on techniques, networks, resources, collaboration and approaches to forest fire management (ref. para 34 (i))
16. - 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. In this regard, it is recommended that FAO distribute a questionnaire soliciting opportunities for new agreements (ref. para 35 (iii))
17.- identify and help develop funding mechanisms to encourage and underpin vigorous action that leads to the development of emergency response agreements (ref. para 35 (v))
18. - 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 (ref. para 35 (vi))
19. - develop training and briefing programmes for emergency response teams, based upon on-going experiences (ref. para 35 (ix))
Recommendation |
Proposed Lead |
Comments |
1. Participate in the existing initiatives and mechanisms |
FAO and collaborating organizations and mechanisms |
On-going. Includes MOU with GFMC and possible other organizations or mechanisms; and collaboration e.g. with IUCN in community involvement in forest fire management and control. |
2. Facilitate networking and collaboration between countries through identifying or creating national focal points |
FAO |
Action supported by the IFMN; full use will be made of already existing networks and focal points, such as Silva Mediterranea (which has a Research Network on forest fire management |
3. Develop Country Fire Profiles |
FAO |
In collaboration with countries and GFMC, existing Profiles will be added to FAO webpage and produce new profiles |
4. 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 |
Member countries |
Country responsibility; to be supported by FAO and international partners, at request. |
5. Support countries to 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. |
FAO |
FAO Guide to forest fire management in temperate/boreal zones under preparation (2001-2001); will complement earlier guides by FAO and by ITTO which focussed on the tropics. Possibility to incorporate fire related aspects in country capacity building in general will be reviewed. |
6. Catalyse action and provide technical support to member countries in the development of agreements at bilateral and regional levels |
FAO |
Work will be supported by the IFMN. Fire Agreement guidelines and examples will be added to FAO webpage. |
7. Strengthen staff support in Fire Management |
FAO |
New post at FAO HQ established in 2002. |
8. Establish Forest Fire Information Centre |
FAO |
Contacts to be established with with existing institutions. Review under way of other in-House arrangements and collaboration. Collaboration foreseen with centres such as the GFMC. |
9. Support activities that bring people together to improve fire management capacity |
FAO and collaborating organizations and mechanisms |
Full use will be made of the IFMN. Organization and sponsorship of workshops and meetings, including a Community-based Fire Management Workshop in Africa in collaboration with IUCN, ITTO, others. |
10. Provide technical support to improve management of forest resources, including forest fire prevention and management as an integral component of such management |
FAO |
Includes collaboration in the development and implementation of criteria and indicators for sustainable forest management; and the preparation of guidelines and guides. Webpages to highlight and publicise case studies on fire prevention and control, including aspects of community involvement. |
11. Develop data standards for fire reporting within the FRA framework |
FAO |
Streamlining of concepts and terms underway through review/ up-dating of tri-lingual FAO Wildland Fire Management Terminology (FO Paper 30). Experts in March 2001 meeting reiterated the need for country-based, qualitative as well as quantitative data, noting the need to make allowance for the use of fire as a land clearing tool; action will be taken to review definition and inclusion of standardised parameters. |
12. Review and facilitate international fire management collaboration |
FAO and collaborating organizations and mechanisms |
Country case studies underway on participatory forest fire management (FONP/FORM: Gambia, Honduras, Turkey). Collaboration, cooperation among institutes will be further streamlined based on mandates, on-going action and comparative strengths. |
13. Encourage forest fire management cooperation, and catalyse and support the development of new emergency response agreements |
FAO and collaborating organizations and mechanisms + member countries |
On-going, continuing activity, closely related to (4) above. |
14. Task Force to monitor Progress |
FAO |
Making full use of the IFMN, implementation of this recommendation will be further reviewed. |
15. Make fire management. information available |
FAO and collaborating organizations and mechanisms + member countries |
To be implemented through printed documents, CD Roms, Webpages, and joint meetings |
16. Compile inventory of international Forest Fire Agreements |
FAO |
Continued expansion of coverage of inventory of Agreements; information will be assessed, stored and made available in line with (15) above. |
17. Identify and help develop funding mechanisms to encourage development of International Agreements. |
FAO and collaborating organizations and mechanisms + member countries |
Country requests will be channelled or directed to appropriate funding sources, as applicable. |
18. Establish compatible Incident Management Systems within Regions |
FAO and collaborating organizations and mechanisms + member countries |
Fire Suppression Guidelines to be lodged on webpage |
19. Develop Training for Emergency Response Teams |
UN/OCHA, OFDA, FAO and collaborating organizations and mechanisms + member countries |
Training courses and the preparation and dissemination of training materials will be intensified and adaptation to local conditions, with dissemination of information in local languages, will be encouraged and supported. |
A major objective of the Expert Meeting was to review and analyze available information on formal and informal fire agreements at bilateral and multi-lateral levels. Participants wanted to develop examples and guidelines to coordinate international efforts to share resources, personnel and equipment in situations of emergency and in preparation for fire emergencies.
There are several reasons that make International Fire Agreements a useful mechanism between countries:
1. Fires from one country may threaten people and natural resources in an adjacent country.
2. Smoke from fires in one country may threaten public health, navigation, and aesthetics in an adjacent country.
3. A country may have firefighting resources depleted in drought years, requiring assistance from another country.
4. Agreements may ensure a more proactive sharing of information across borders during fire seasons.
At the Expert Meeting on Forest Fires in March 2001 examples of International Fire Agreements for Canada, the United States, Mexico, Australia, and New Zealand were presented and discussed. A letter in English, French, and Spanish was sent by fax in June to over 70 FAO Country Representatives requesting that they submit additional International Agreements that were available. Members of the Fire Management Network also were asked to send examples of International Fire Agreements to FAO. These requests resulted in the identification and collection of the following Agreements (Annex 4):
Also, included in the inventory are examples of Annual Operating Plans/Operational Guidelines between Canada and the United States, and Mexico and the United States. The Operating Plans are more site specific and contain procedural details not contained in the overall Agreements.
After reviewing the documents, a matrix for the Agreements and a matrix for the Annual Operating Plans/Operational Guidelines were completed to show the common and different elements in detail. Two additional matrixes were prepared showing an overview of the elements (Annexes 10 and 11).
With the help of this detailed analysis, a list of FAQs (Frequently Asked Questions) was compiled with answers (Annex 5). This list gives countries considering the possibility to enter into such agreements new ideas and reminds them of the most important elements.
Country requirements will determine which topics are finally included in an International Agreement. But it is recommended that the following topics be considered for inclusion in Bi-Lateral or Multi-Lateral Fire Agreements:
1) Parties to the Agreement
2) Purpose of the Agreement
a) mutual assistance in prevention, presuppression and
control
b) potentially only in especially defined zone
3) Definitions of technical terms
4) Executive organizations or officials
5) General Obligations
a) to render assistance
b) coordination of
work
c) standard of personnel
d) medical aid for injured
personnel
e) safety equipment
f) information exchange
g) provision
for annual operating plans/operational guidelines
h) provision for authorised burning
6) Reimbursement of costs
a) burden of reimbursement
i) for personnel
ii) for equipment
b) potential exemption from reimbursement
c) reimbursement procedures
7) Liabilities
a) cross-waiver of claims/exemption from
liability
b) exceptions to cross-waiver of claims
c) damage to third
persons
d) liability of officer responsible for equipment
e) privileges and immunities
8) Operating Plan/Operational Guidelines
a) authority to develop plan/guidelines
b)
purpose
c) review
d) content
e) register of all existing plans/guidelines
9) Customs provisions
a) simplification of border transfer
b) concerning
personnel
c) concerning equipment
d) concerning aircraft
e)
concerning officer responsible for equipment
10) Other Provisions
a) implementation of Agreement
b) personnel
matters
c) equipment and aircraft
d) recall of firefighting
resources
e) other areas of cooperation
f) policies
g) general
management of assistance
h) prohibition of fire in certain period of the
year
i) observation points
j) dispute settlement
k) relation with
other agreements
l) military involvement
m) annual review and
amendments
n) billing and payment
o) fiscal provisions
p) funds
11) Duration/Termination
a) duration
b) termination
The International Fire Management Network was asked to review and further develop the forest fire reporting database available on the FAO Forest Resources Assessment Programme Webpage, including the identification of additional fire management information proposed to be included in the country profiles. The existing Country Profile for Fire Management was sent to all Network members for comment.
Since no additional comments were received, the following Country Profile format used in FRA 2000 is recommended as the template to be used in the future:
Forest Fire situation in: (name of country)
Please complete the following information about forest fires and how they are managed. A summary page, using this information, will be included in the FAO Forestry web site. For an example, please see http://www.fao.org/forestry/fo/country/is.jsp?lang_id=1&geo_id=99&page_id=1179.
In addition to a narrative summary, include the national definition of what constitutes a "forest fire".
|
Year |
Total No. of Fires on Forest, Other Wooded Land, & Other Land No. |
Total Area Burned on Forest, Other Wooded Land, & Other Land ha |
Area of Forest Burned ha |
Area of Other Wooded Land and Other Land Burned ha |
Human Causes No. |
Natural Causes No. |
Unknown Causes No. |
1990 |
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1991 |
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1992 |
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1993 |
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1994 |
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1995 |
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1996 |
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1997 |
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1998 |
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1999 |
Record data for all wildfires, or any fire occurring on wildland except a fire under prescription.
Note: This table needs to be completed only by those countries which do not report annual data on fires using the UN-ECE/FAO/Commission of European Communities questionnaire on forest fires.
Definitions:
Forest: Land with tree crown cover of more than 10 percent and area of more than 0.5 hectares. The trees should be able to reach a minimum height of 5 meters at maturity.
Other wooded land : Land either with a crown cover of 5-10 percent of trees able to reach a height of 5 meters at maturity; or a crown cover of more than 10 percent of trees not able to reach a height of 5 meters at maturity; or with shrub or bush cover of more than 10 percent.
Other land : Land with less crown cover, tree height, or shrub cover than defined under "Other wooded land". Indicate if recurring wildfires affect "Other land" by inhibiting regeneration to the "Forest" and "Other wooded land" categories.
Date: ___________
Source of information: __________________________________
Country correspondent: _________________________________
E-mail address of correspondent: _________________________
Is fire database management by computer or by paper records: _________________.
Address of website to access the fire database, if available: ____________________.
