Cariboo-Chilcotin Agriculture/Wildfire …...Cariboo-Chilcotin Agriculture/Wildfire Preparedness Project Opportunities and Barriers to Wildfire Risk Mitigation Prepared for BC Agriculture

Cariboo-ChilcotinAgriculture/WildfirePreparednessProject

OpportunitiesandBarrierstoWildfireRiskMitigation

Preparedfor

BCAgriculture&FoodClimateActionInitiative

CaribooCattlemen’sAssociation

Preparedby

CompassResourceManagementLtd.604.641.2875Suite210-111WaterStreetVancouver,BritishColumbiaCanadaV6B1A7www.compassrm.com

Date

June2016

InAssociationwith

and

H.Bayliff

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StatementofLimitations

ThisreporthasbeenpreparedbyCompassResourceManagementLtd(“Compass”)anditspartnersfortheexclusiveuseandbenefitofCaribooCattlemen’sAssociation(“Clients”).ThisdocumentrepresentsthebestprofessionaljudgmentofCompassandourpartners,basedontheinformationavailableatthetimeofitscompletionandasappropriateforthescopeofwork.Serviceswereperformedaccordingtonormalprofessionalstandardsinasimilarcontextandforasimilarscopeofwork.

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Acknowledgements

Thisreportwaspreparedfor:

TheCaribooCattlemen’sAssociationinpartnershipwiththeBCAgriculture&FoodClimateActionInitiative

Projectfundingprovidedby:

FundingforthisprojecthasbeenprovidedinpartbytheBeefCattleIndustryDevelopmentFundandinpartbyAgricultureandAgri-FoodCanadaandtheBCMinistryofAgriculturethroughtheInvestmentAgricultureFoundationofBCunderGrowing Forward 2,afederal-provincial-territorialinitiative.TheprogramisdeliveredbytheBCAgriculture&FoodClimateActionInitiative

Reportpreparedby:

CompassResourceManagement,Ltd.,B.A.Blackwell&Associates,andH.Bayliff

CaribooAgriculturalAdaptationProjectManagementCommittee:DuncanBarnettSamanthaCharltonAllenDobbJennyHuffmanGeneveJasperEmilyMacNairGregTegartDavidZirnhelt

CaribooAgriculturalAdaptationWorkingGroup:DuncanBarnettRobBorsatoJennyHuffmanGeneveJasperKarenMooresTomSalleyJoanSorley

Inaddition,CompasswouldliketothanktheagriculturalproducersandothersintheCaribooRegionwhoprovidedinformationduringthestudy.

AgricultureandAgri-FoodCanada(AAFC)andtheBCMinistryofAgriculturearecommittedtoworkingwithindustrypartners.OpinionsexpressedinthisdocumentarethoseoftheauthorandnotnecessarilythoseofAgricultureandAgri-FoodCanadaandtheBCMinistryofAgriculture.TheGovernmentofCanada,theBCMinistryofAgriculture,anditsdirectors,agents,employees,orcontractorswillnotbeliableforanyclaims,damages,orlossesofanykindwhatsoeverarisingoutoftheuseof,orrelianceupon,thisinformation.

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ExecutiveSummaryBetweenMarch2015andJune2016,CompassResourceManagement,B.A.Blackwell&Associates,andH.BayliffengagedranchersintheCariboo-ChilcotinregioninaplanningprocesstoidentifytheopportunitiesandbarrierstomoreeffectivewildfireriskmanagementonranchlandpropertiesintheCaribooregionofBritishColumbia,andtopilotanapproachtoaddressingthatrisk.Thisdocumentfocusesontheoutcomesofindividualranchvisitsandmorewidelyattendedworkshopsdesignedtoinitiatediscussionsontheopportunitiesandbarrierstoimplementingwildfireriskmanagementstrategies.Morespecifically,wesoughtfeedbackonthetopicsoffuelsmanagementnearhigh-valueareas,andstructuralprotectionintheeventofwildfires.

TherearemanyopportunitiesforrangetenureholderstoapplyforpermitstocuttreesinthevicinityoffencelinesandotherranchinfrastructureundertheForestandRangePracticesActandtheRangePlanningandPracticesRegulation.However,twoimportantbarrierswereidentified:

• Ranchers’timeislimited,andfuelmitigationisunlikelytorisetoahighprioritylevelformostranchersinmostsituations.

• Theneedtodisposeoffuels(ratherthanleavethemontheground)limitsranchers’optionsforpermitstocutfuels,andmoreimportantly,presentsaseriousliabilityconcernforthemostcost-efficientmethodoffueldisposal,whichispileburning.

Themajoropportunityintermsofstructuralprotectionintheeventoffireswasrelatedtosprinklerprotectionunits(SPUs).Theseunitscouldbepurchased,maintained,andoperatedbylocalcattlemen’sassociations.Forthisopportunity,therewerealsotwokeybarriersidentifiedintheworkshops:

• Costcouldbeabarrier,buttheexactcostwilldependgreatlyonthedesignoftheunits.Anindividualranchmaynotbeabletoaffordafullkittoprotecttheirranch(atacostof$23,000),butasetof3kitstobedeployedinemergencies(atacostof$72,000)mightnotbeoutofthequestionforacattlemen’sassociation.

• AgreatdealofplanningeffortisneededtoensurethattheSPUsareusedcorrectlyandmaintainedwell.Inaddition,detailedoperatingguidelinesthatdictatewhoisresponsiblefortheSPUs,wheretheyarekept,andhowtheyaredeployedarecriticaltotheirsuccessfuluseinanemergencysituation.

Tomakeprogresstowardtacklingthesebarriers,weprovidethefollowinginsights:

• Withoutfinancialincentivesthatprovidethemwiththeflexibilitytodotheworkthemselvesortohireothers,ranchersasagroupareunlikelytomakeprogresstowardreducingfuelloadingacrosstheirranges.

• Rancherswouldbenefitgreatlyfromhelptodevelopdetailedfueltreatmentprescriptionsthatmakesmartuseoftheavailablepolicyoptions,andsimultaneouslyprovidelandscapescalebenefitthroughthedevelopmentoflandscape-scalefirebreaks.

• TechnicalandfinancialsupporttoaidthedevelopmentofdetailedoperatingprocedurescouldprovecriticaltoensuringthattheSPUsgetusedproperlyovertime.

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Contents

1 Introduction................................................................................................................................11.1 IdentifyingAppropriateManagementActions........................................................................2

2 Gaininginsightsintoopportunitiesandbarriers........................................................................33 Proactiveinterventiontoreducewildfireriskonrangelands....................................................43.1 Opportunities...........................................................................................................................43.2 Barriers.....................................................................................................................................6

4 EmergencyplanningforranchesintheCariboo........................................................................74.1 Opportunities...........................................................................................................................74.2 Barriers...................................................................................................................................10

5 Conclusionsandnextsteps......................................................................................................106 References................................................................................................................................127 Appendices...............................................................................................................................137.1 RegulationsonPileBurning...................................................................................................137.2 ConsequencesofviolatingcuttingpermitsorWildfireActprovisions..................................147.3 Additionalsprinklerkitspecifications:...................................................................................17

Figures

Figure1.Riskisaproductofthelikelihoodandconsequencesofafire,eachofwhichcanbeexpressedalongacontinuumoflowtohigh(left).Differentcombinationsoflevelsoflikelihoodandofconsequenceimplydifferentmanagementstrategies(right)......................................................2Figure2.Thistenureareanearranchinfrastructureshowshighfuelloadontheground(fallendead),andhighnumbersofunderstorytreesthatcanactasladderfuels.Thesesortsofareasmaybegoodcandidatesforfuelmanagementactions..........................................................................5Figure3.Exampleofasprinklerusedonarooftoptoprotectthebuildingfromembershowers.Photocredit:SmallFarmServices,Australia...........................................................................................8Figure4.Aschematicofcomponentsandgenerallayoutforasprinklerunitsetuponaruralproperty.Structuresarerepresentedinthefigurebyblackrectangles.(Swart,2016).........................9

Tables

Table1.ExamplemanagementactionsthatfallwithineachriskmanagementstrategyshowninFigure1................................................................................................................................................2Table2.Estimateofsprinklerunitcosts(Swart,2016)........................................................................17Table3.Sprinklercomponentspecifications(Swart,2016).................................................................17Table4.Examplesofstandbygeneratorunitprices,comparingKohler,Briggs&Stratton,andCumminsbrands...................................................................................................................................18

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1 Introduction

TheCariboo-Chilcotinregionexperienceswildfireonaregularbasis.Becauseranchersthereareoftengeographicallyisolatedandbecausetheirranchassetsaredistributedacrossafire-pronelandscape,theranchingcommunityintheregionis,ingeneral,exposedtoahighlevelofrisk.BetweenMarch2015andMay2016,CompassResourceManagement,B.A.Blackwell&Associates,andH.BayliffengagedranchersintheCariboo-Chilcotinregioninaplanningprocesstoidentifytheopportunitiesandbarrierstomoreeffectivewildfireriskmanagement.TheprojectwasledbytheCaribooCattlemen'sAssociationinpartnershipwiththeBCAgricultureandFoodClimateActionInitiative,theMinistryofAgricultureandotherpartners,withfourbroadgoals:

1. Minimizethedamagetoagriculturalproductivityandagriculturalinfrastructureassociatedwithwildfireevents,

2. Strengthen(agriculture-specific)informationandresourcestoassistproducerswithwildfiremitigation,preparednessandrecovery,

3. Improvecollaborationtosupportagriculturewithwildfirepreparedness,mitigationandrecovery,

4. Identifycosts,issuesandbarriersaroundimplementationofmitigationandpreparednessmeasures.

Theprocessweusedtoaccomplishthesegoalsisuniqueinthatitmaintainedfocussimultaneouslyonranchers’values–thethingsthatareimportanttothemandtotheirbusinesses–andonadeepunderstandingofforestconditionandwildfirebehaviour.

Theprojectresultedinfourprimarydeliverables:

1. Asummaryofwildfire-relatedresourcesrelevanttopreparedness,mitigation,andrecoveryactionsforranches,

2. Aranch-levelwildfirepreparednessplanningtemplatetoprovideguidancetootherranchesintheCariboo-Chilcotininpreparingforandmitigatingtheriskofwildfire,

3. Anevaluationofthepolicyopportunitiesandbarrierstomoreeffectivewildfireriskmitigationactivitiesforranches,basedonresearch,informationprovidedbytheprojectsponsorsandinputgainedintheprocessworkshops,and

4. Asummaryofthetransferableplanningprocesstohelpguidesimilarplanningprocessesinotherregions.

Ourapproachtothiskindofproblemseparatesthetwocomponentsofrisk–thelikelihoodandtheconsequencesofawildfire.Consideringthesetwoelementsseparatelyandinalloftheirpossiblecombinations(e.g.,lowlikelihoodandlowconsequencevs.lowlikelihoodbuthighconsequence)notonlyallowsustodifferentiatebetweendifferentkindsofrisk,butalsoallowsustoconsiderstrategiesforreducingriskthatmatchthetypeofriskitself(Figure1).Differentcombinationsoflevelsoflikelihoodandconsequenceimplydifferentstrategiesforreducingrisk.Forexample,whenawildfireisunlikelyandtheconsequencesshouldonehappenarenotimportant(lowerleft,leftsideofFigure1),thenanyefforttofurtherreducetheriskisprobably

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notwarranted(rightsideofFigure1).Ontheotherhand,iftheconsequencesorthelikelihood(orboth)arehigh,thentakingsomesortofactiontoreducetheriskmakesmoresense.

Figure1.Riskisaproductofthelikelihoodandconsequencesofafire,eachofwhichcanbeexpressedalongacontinuumoflowtohigh(left).Differentcombinationsoflevelsoflikelihoodandofconsequenceimplydifferentmanagementstrategies(right).

1.1 IdentifyingAppropriateManagementActions

Evenwiththeconceptualguidancesuggestedbyfigure1,implementingamanagementactionstillrequireschoicesaboutwhattodo,aswellaswhen,how,andwheretodoit.Forexample,fuelreductiontreatmentsareagoodtoolforreducingthelikelihoodofawildfire,particularlywhendoneclosetohigh-valueareas(Table1).However,choicesneedtobemadeaboutwhichfuelsshouldberemoved,overwhatschedule,andwhereonthelandscape.

Table1.ExamplemanagementactionsthatfallwithineachriskmanagementstrategyshowninFigure1.

ProactiveIntervention - Large-scalefuelreductiontreatments- Prescribedburns- Firebreaksaroundimportantinfrastructure- Replacevulnerablebuildingmaterials

Mitigation&Monitoring - Small-scaleopportunisticfuelreductiontreatments- Monitoringfirelikelihood(e.g.,updatingfuelsmaps)to

knowwhentotriggermoreactiveapproaches- Equipranchstaffwithbasicfiretoolstoextinguishsmall

firesonthepropertyEmergencyPlanning - Insurance

- SprinklerProtectionKits- EvacuationPlans- CertifyranchemployeesinS100training.

DoNothing - Noactions

Inallcaseswheretheprobabilityofwildfireishigh,choosingmanagementactionsfromthespectrumofpossibilitiesshouldreflectthescaleofthevaluesatrisk.Highvalueareaswith

ProactiveIntervention

Emergency PlansDo Nothing

Mitigation Monitoring

LowConsequence

Likelihood

High

High

Low

Consequence

Likelihood

LowHigh

High

Low

Assessed Risk Management Strategies

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criticalinfrastructureshouldreceivemanagementactionscommensuratewiththatvalue.Likewise,areaswithlowervalueassetsshouldreceivelessandlessintensiveactions,againcommensuratewiththescaleofthevalue.

Startingdownthepathtowardgoodchoicesofmanagementactionsrequiresunderstandingwhattheopportunitiesandbarrierstothevariousoptionsareforthose,includingwhichactionsarewithinthescopeofcontrolofthedecisionmaker–inourcase,ranchersintheCariboo.

Thisdocumentisthethirdoffourdeliverables,whichfocusesontheoutcomesofindividualranchvisitsandmorewidelyattendedworkshopsdesignedtoinitiatediscussionsontheopportunitiesandbarrierstoimplementingmanagementstrategiesthatmatchthenatureofriskthattheranchingcommunityfacesintheCariboo.

2 Gaininginsightsintoopportunitiesandbarriers

Inthefallof2015,weworkedwithsevenranchesacrosstheCariboo-ChilcotinRegiontoperformmorein-depthassessmentsofthesourcesofrisktotheirranches,andalsotodiscusssomeoftheirconcernswithvariousoptionsforriskmanagement.Twooptionsincludedfuelsmanagementnearhigh-valueareasoftheirranch,andstructuralprotectionintheeventofwildfires.

Inadditiontothesevisits,weheldtwoworkshops,oneinTatlaLakeandoneinWilliamsLake,togetfeedbackfromawideraudienceonthesametopics.TheseworkshopswereattendedbyrepresentativesfromTheCaribooRegionalDistrict,theWildfireServicesBranch(WSB),andtheMinistryofForests,LandsandNaturalResourceOperationsRangeOffice.Inaddition,eachworkshophadbetween15and18ranchersfromthelocalcommunities.Thisattendanceprovidedadiversityofperspectivesandexperiencerelatedtowildfireandwildfiremanagement.

Ineachworkshop,wefirstprovidedabriefreviewofthelessonswelearnedfromouranalysesandourranchvisits.Themajorlessonsfromthatphaseoftheprojectwerethatmostoftherisktothehighvaluepartsoftheranch–theranchheadquartersandthenetworkoffences–isfromhighfuelloadsinthetenures.Additionally,thesevenranchesthatwevisitedhaddonethethingsnecessarytocomplywithBCFireSmartguidelines,whicheffectivelyreducesthelikelihoodoffiresinthemainranchareas.Therefore,accordingtoFigure1,theappropriatestrategieswouldbetofocusonproactiveinterventionandmitigationinthetenureandemergencyplanningforthemainranchareas.Inaddition,Table1suggestsappropriateactionswithineachcategory.RancherinterestthatwasexpressedduringthefirstroundofworkshopsandduringourvisitsservedasthebasisforselectingparticularmanagementactionsfromTable1ascandidatesforfurtherdiscussion.

Thebulkofeachworkshopwasdevotedtodiscussingtheopportunitiesandbarrierstoproactiveinterventionoptionssuchasfuelreductiontreatmentsnearmainranchareasandfencelines,andtoemergencyplanningoptionssuchassprinklerkitsforbuildingprotectionintheeventofafire.Thesectionsbelowdescribetheoutcomesoftheseworkshops.

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3 Proactiveinterventiontoreducewildfireriskonrangelands

Ingeneral,weconsiderthepurposeofproactiveinterventionstobetoreducethelikelihoodofawildfireinhighvalueareas,ratherthantoreducetheconsequences(byremovingfences,forexample,ormovingbuildings).Thisgenerallyoccursbyeliminatingproblematicfuelsthoughafueltreatmentplan.However,becauseingeneralranchersdon’thaverightstothetimberintheirgrazingtenure,manyranchersexpressedsomeuncertaintyabouttheiroptionsforreducingfirerisk.

Thefollowingtwosectionsdescribethemajoropportunitiesforfuelreductionsforranchers,andthensomeofthemajorbarrierstoimplementingthoseoptions.

3.1 Opportunities

TherearemanyopportunitiesforrangetenureholderstocuttreesinthevicinityofranchinfrastructureunderdifferentregulationssuchastheForestandRangePracticesActandtheRangePlanningandPracticesRegulations.However,anycuttingoftimberunderanyregulationrequiresapermitapprovedbytheFLNRODistrictResourceManager.

ReducingfuelsaroundnewandexistingCrownfence

IftheCrownfenceisanewfence,thentheentireright-of-way(ROW)islikelytobeauthorizedwitha5-metreROW;theapproximatewidthneededforaquadanddrivertobedrivenoneitherside.IfthenewCrownfenceisconstructedinastandthatisgreyattack,forexample,therangetenureholdercouldgetauthorizationtomaketheROWatreelengthonbothsides.Agreyattackstandisaforeststandwithamajorityoftreeskilledbyinsects;thisphasegenerallybeginsfivetosevenyearsaftertheforestiskilled.Thistreelengthdistanceprovidesfortheprotectionofthefencefromtherealpotentialdamagefromwindthrowndeadtrees.ThisonlyappliestothosetreesthataredeadandmaythreatentheCrownfence.Inthecaseoffuturemaintenanceofthefenceinagreyattackedstand,thetenureholderwouldonlybeabletomaintaina4-meterROWwidthwiththeselegalauthorities.Notimbermarkandnostumpagewouldbechargedifthetreeswereleftonsite,thoughleavingthesefuelsinplacereducesthebenefittowildfirerisk.

InthecaseofexistingCrownfence,therangetenureholdercouldalsoapplyforapermitunderSection52ofFRPAtocutfuelsifthatfenceexistedwithinastandoftreesthatwerethreateningtheCrownfence,e.g.aninsectinfestedpatchorlargeareawithanumberoftreesthatcouldfallanddamagetheCrownfence.Similartotheexampleabove;theROWcouldthenbeatreelengthonbothsidesandwouldapplytodeadtreesofanydiameter.Notimbermarkandnostumpagewouldbechargedifthetreeswereleftonsiteandproperlydisposedof.IfapermitwasrequestedbyarangetenureholderthespecificationsforatreelengthROWoneachsidewouldneedtobeinwritingandsignedbytheDistrictResourceManager.

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Figure2.Thistenureareanearranchinfrastructureshowshighfuelloadontheground(fallendead),andhighnumbersofunderstorytreesthatcanactasladderfuels.Thesesortsofareasmaybegoodcandidatesforfuelmanagementactions.

Reducingfuelsnearranches,corrals,andotherhighvalueareas

AnauthorizationunderSection52ofFRPAshouldbeusedwheretheprojectinvolveslittleornomerchantabletimberandthetimberwillnotbesold.ApplyingfortheSection52israthersimplefromtherangelicenseestandpointandinvolvessendingaletterofrequestforaSection52(includinganattachedmapandplanfortreatmentandfueldisposal)totheDistrictResourceManager.

Rangelicenseesareallowedtocutdamagedordestroyedtimberwherethereisclearlynocommercialharvestingopportunity,aftersendingaletterofrequest(includinganattachedmapandplanfortreatmentandfueldisposal)totheDistrictResourceManager.Thetimbermustbeofsuchpoorqualitythatitcannotbesoldforanypurposeonceithasbeenharvested.Thisincludessmallpiecesize,branches,brush,dead,deteriorating,damagedorunderstorytrees,etc.Thisformofauthorizationistobeusedtoapproveactivitiessuchaspruning,spacing,pilingandburningandchippingoftimber.Insomecircumstancestheremaybesmallmerchantablevolumesinterspersedwiththenon-merchantabletimber.Itissuggestedthatasmallvolume(50m3)ofmerchantabletimbermaybecut,damagedordestroyedunderthisoption.However,itisrecognizedthatcertainsituationswillwarrantexceedingthissuggestedmaximum.Ifthissmallamountmaybeexceeded,theDistrictResourceManagermustbeinformedandtheprojectre-evaluated.Generally,thetimberwillnotberemovedfromthesite.However,anexemptioncanbeprovidedinthecasewherethetimberneedstoberemovedforfirehazardpurposesandwillnotbesoldtosomeoneelse(i.e.,removedtoacentrallocationfordisposal).ThisremovalrequiresawrittenexemptionbytheDistrictResourceManager.

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Afreeusepermit(undertheForestAct)couldbeusedwherethemerchantablevolumeinvolvedislessthan50m3andwherethetimberwillnotbesold.Thepurposeofthispermitistoallowtherangelicenseetousethetimberforagriculturalorpersonalusesuchasfenceimprovementsandfirewood.Thislikelyappliestosingleorsmallgroupsoflowvaluetrees.ThisfreeusepermitislikelytobeparticularlyusefulforCrowntimberthatisnearprivatelyownedranchinfrastructuresuchasprivatefences,corrals,andbuildings.Incontrast,theregulationsdescribedabovenormallyapplytoCrownassetssuchasCrownfence.Themainapplicationofthisoptionwillbetoauthorizepersonalfirewoodcutting(notforcommercialpurposes),andcouldtargetliveanddeadtreesofanysize.Thenumber,sizeclasslimitsandvolume(m3)wouldhavetobenegotiatedinthepermitwiththeMinistryofForests,LandsandNaturalResourceOperations.

Disposingoffuel

BABlackwellhasrecommendeddebrismanagementoptionslikechipping,lopandscatter,andoutrightremovalbytruck.Themostappropriatedebrisdisposalmethoddependsonwhichfuelmanagement/treecuttingoption(s)arechosen,whichinturndependsontheamountoffuel,costeffectivenessofthetreatment,andoperationalconstraints.Thefollowingaresomedebrismanagementoptions:

1. ChiporDragandRemove(CDAR)–thechippinganddraggingofdebrisandremovalfromthetreatmentsitefordisposal.Thisdebrismanagementmethodcanbeappliedinanyfueltypeortreatmenttypewhenthereisgoodaccessandremovalofthemajorityofsurfacefuelsispossible.Thisisgenerallyrecommendedwhenvehicleaccessiswithin50m.Draggingreferstodraggingdebristoamachine,suchasachipperoraircurtainburner,fordisposal.

2. ChipandLeave(CAL)–thechippingofdebrisanddistributionofdebrisonthesite.Thisdebrismanagementmethodmaybeutilizedfollowingahazardtreeremovaltreatmentwhensurfacefuelloadislowandtheamountofdebrisbeingchippedisminimal.Inthecourseofourdiscussions,someranchersexpressedconcernsoverchippingfuels(particularlywherethereislotsofdebristochip)andleavingtheminplace,citingpastexperienceswherethechipsdamagedcows’feet.It’sunclearwhetherthisisaconsistentproblemoronlyforsomesituations.

3. PileandBurn(PB)–Theuseofeithersmall(1.0mx1.0m)campfirepilesorlargerindustrialpilestoburnanddisposeofdebris.Thismethodcanbeimplementedinallfueltypesandonsiteswhereaccessislimitedorsitesareisolated.However,thereisconsiderableliabilityandplanningwithadviceofaprofessionalisadvised.Section7.1intheAppendicesprovidesdetailedinformationonregulationsthatpertaintopileburning.

3.2 Barriers

Themostconsistentbarriertoconductingfueltreatmentsthatranchersattheworkshopsidentifiedwastimeavailability.Overthecourseofthetwoworkshops,responsestoquestionsaboutwhetherrancherswouldmakethetimetotakeadvantageoftheseopportunitiesweremixed,andalsovariedbylocation.IntheTatlaLakemeeting,mostranchersvoicedthatforafewkeyareas,spendingthetimetoreducefuelswouldbeahighpriority,eventhoughmostfelt

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itwasnoteconomicallyjustified.IntheWilliamsLakemeeting,however,theresponsewasmoremixed–abouthalfwereappreciativeofknowingwhattheiroptionswere,butfeltitwasunlikelythatfuelreductionwouldeverrisetothetopoftheirprioritylist.

Evenwhenweaskedwhetherfueltreatmentactivitieswouldbecomeapriorityiftherancherscouldbepaidfortheirtime,theresponsesweresimilar.Forsome,beingpaidwouldenablethoseactivitiestobecomehighpriorities,butformostoftheranchersinattendance,thelimitingfactorwastimeratherthancompensation.Someparticipantsnotedthathavingconsistentfundingopportunities,ratherthanone-timeopportunities,wouldbetterenablemakingregularprogressonfuelmitigationwork.Inaddition,havingaccesstolargemachineryandotherwaysofreducingtheamountoftimespentthinningfuelswasattractivetosomeparticipants,butwasn’tidentifiedasaprimarybarriertoprioritizingfuelreductions.

TheneedtodisposeofanyfuelsthatarecutfromfenceROWsandfromareasnearranchespointedtoanothersignificantbarrier.Themostcostefficientmethodofdisposingoffuelsispileburning,asdescribedabove.Ifdonepoorly,however,burningdebriscanleadtoescapedfiresandlargescaledamage.Thereareclearregulationsforwhenburningisaviableoption(seeappendices,section5.2),buttheconsequencesofcausingdamageareseriousenoughthatmanyrancherssaidtheywouldnotengageinfuelreductionpracticesbecauseofthefearofbeingheldliablefromstartingafire.Severalpossiblewaysofreducingtheriskofliabilitycameupfordiscussion,mostnotablyincludingtemplatesfordocumentingandrecordingduediligenceonthepartoftherancherstofullyextinguishpileburnlocations.

4 EmergencyplanningforranchesintheCariboo

Evenwiththebestmitigationactions,theriskofwildfirecannotbefullyeliminated.Therefore,planningforemergenciesisacriticalpartofreducingtheimpactofwildfiresoverthelongterm.Inaddition,allofourranch-levelassessmentsshowedthatbecausetheranchareasgenerallyconformtoFireSmartguidelines,theriskofdirectwildfireimpactsontheranchheadquartersisrelativelylow,whiletheconsequenceisextremelyhigh.Accordingtofigure1,themostappropriatemanagementactionundertheseconditionsisemergencyplanning.

4.1 Opportunities

Followingthedevastating2003fireseason,areviewofBritishColumbia’sresponsetointerfacefireswasestablishedbytheprovincialgovernmentandcarriedoutbythehonourableGaryFilmon.ThisreviewfoundthatBCcoulddomoretobebetterpreparedforwildfireemergencies(OfficeoftheAuditorGeneral,2005).Firefightersoftendonothavetheresourcestoprotecteverystructureindangerofanoncomingwildlandfire.Homeownersmust,therefore,planonprotectingthemselves.InadditiontoincreasingawarenessthroughtheFireSmartinitiative,theFilmonReviewrecommendedthathomeownersinvestin“methodsofself-protectionsuchassprinklersassoonaspossible(Filmon,2004).”

In2004,theUnionofB.C.MunicipalitiesacquiredprovincialfundingandtechnicaladvicefromtheOfficeoftheFireCommissioner(OFC)andtheBCWildfireService(BCWS)todevelopandassembleSprinklerProtectionUnits(SPUs)(Merson,2006).TheseSPUsaretrailerscontainingthecomponentstoinstallsprinklerstostructuresatriskfrominterfacefires.TheSPUsare

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ownedbytheUBCM,storedandmaintainedbytheBCWS,whiledeployment,training,andpubliceducationaremanagedbytheOFC.Deploymentistriagedtothestructuresthataremostvulnerabletoapproachingfires(Merson,2006).

Figure3.Exampleofasprinklerusedonarooftoptoprotectthebuildingfromembershowers.Photocredit:SmallFarmServices,Australia.

AccordingtotheOFC,settingupstructuralsprinklersistheeasieststepinmakingapropertyFireSmartandisover90%effectiveinsavingstructuresfromwildfire(Ree,2016).Thesprinklermethodworksbywettingsurfacesandslowingtheadvanceoffiresbycreatingahumiditydomearoundthestructureandproperty.Moistureintheairisincreasedintheimmediatearea,loweringtheambienttemperaturesufficientlybelowtheignitiontemperatureofembershowersfromnearbyfires.Thelikelihoodofcombustiblesignitingisalsodecreased(Ree,2016).

TheOFCrecommendsaminimumwettingtimeoftwohourspriortothefirereachingthepropertyforfullsaturationandeffectiveness(Ree,2016).Toreducesetuptime,smallercomponentssuchassprinklers,mounts,andbracketscanbeputinplaceatthebeginningofthefireseason,orleftpermanentlyinstalled.Withthesmallercomponentsinplace,hosesandpumpswillbelaidoutandconnected(Figure1)(Swart,2016).Dependingonthepump,a3000gallonbladderwilltakeabouttenminutestofill.Thesprinklersshouldnotbeturnedonuntilnecessaryastheremaybeashortageofwaterinthearea(BCWildfireService,2009).AlistofcomponentsandspecificationsisgiveninTables1and2,intheAppendix(Section7.3).

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Figure4.Aschematicofcomponentsandgenerallayoutforasprinklerunitsetuponaruralproperty.Structuresarerepresentedinthefigurebyblackrectangles.(Swart,2016).Generators

Lossofpowerisacommonproblemduringaninterfacefire.Abackupgeneratorisnecessarytomaintainawatersupplyfromsourcesthatrelyonelectricpumps.Availablepowercanalsoaidinfirefightingefforts,aswellasforpostrecovery.

Anelectriciancanassessapropertytocalculateitsessentialloadintheeventofapowerfailure.Generally,atypicalhomewillrequirea10kWgeneratortopoweressentialssuchaslights,refrigerators,securitysystems,andcommunicationsforseveraldays.Largergeneratorsfrom20to25kWcangenerallyrestorefullpowertoahouseholdforseveraldays(Poetker,R.,2016).

Standbygeneratorsarepermanentlyinstalledonthepropertyandconnecteddirectlytotheelectricalpanel.Theycanrunonnaturalgas,diesel,orpropane(Poetker,L.,2016,seetable3intheAppendix,section7.3).Naturalgasisthemosteconomicalfuelsupplyforgeneratorsunder40kWandalsomoreconvenientasthegasispipedinbeneaththeground.Anassessmentwillberequiredtodeterminewhethernaturalgasisavailableontheproperty.Dieselandpropanerequireanexternaltankwhichmustberefilled(Poetker,R.,2016).Portablegeneratorsthatrunongasolinegenerallyprovidesmallerwattagesandarelessdependablebecauseoftheirsmallerfuelreserves.

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4.2 Barriers

CostwasidentifiedasabarriertoassemblingSPUsasoutlinedintable1(section7.3)formanyindividualranches.However,alloftheworkshopsparticipantsfeltthatthecostofcollectivelyowningresourceslikethis,potentiallythroughlocalcattlemen’sassociations,loweredthecostbarrier.Forsomeindividualranchesthatareparticularlyremoteorwhoseassetsareparticularlydistributedoveralargearea,however,owningasprinklerprotectionkitmightbeworththecost,becauseitmightnotbepossibletodeliverasprinklerkitinanemergency.

Amuchlargerbarrieridentifiedintheworkshopisthelogisticalcoordinationrequiredtooperatesharedemergencyresponseresources.Thereareseveralkeyconsiderationsrelatedtomanagementandoperationthatareimportanttounderstandbeforepurchasingasetofsprinklerkits.Mostimportantly,identifyingwhoisresponsibleformaintainingthekitsandwhatregularmaintenanceisrequired,establishingaprogramtotrainpeopletosetupandusethekitsproperly,anddevelopingasetofoperatingproceduresthatdictatewheretheyarekeptandhowtheyaremobilizedinanemergency.Participantsattheworkshopsdifferedintheirresponsetothedegreetowhichtheseweresurmountable.

AttheTatlaLakemeeting,wheremanyoftheparticipantsareactivelyinvolvedinthecommunitySearchandRescuegroupandalsoregularlyworkonorinsupportoffirecrewsduringthefireseason,workshopparticipantsfeltthatthesebarrierswereimportantbutnotinsurmountable,asmanypeopleinthatcommunityhaveexperiencewithsimilaroperationprocedures.AttheWilliamsLakemeeting,however,manypeoplefeltthatcoordinatingtheuseofsprinklerkitsintheeasternendoftheregionwouldbeparticularlydifficultbecauseofthehighernumberofranches,andbecausethoseranchesarenotasoftendistributedalongmajorhighwaysasinthewesternendoftheregion.

5 Conclusionsandnextsteps

Basedontheresultsofourwork,weareconfidentthatthetworiskmanagementapproachesthatwillprovidethegreatestpotentialforreducingwildfireimpacttotheranchingcommunityintheCariboo-ChilcotinRegionare(1)activefuelreductiontreatmentsinkeyhigh-valueareas,and(2)emergencyplanninginitiativesthatfillgapsintheranchingcommunity’sabilitytoprotectthemselves.Theworkshopsdididentifybarrierstotheimplementationofactionstoaddressthesestrategies,butwebelievethattheyare,inlargepart,surmountable.

Theneedforfinancialincentivestoallowrancherstomakefuelmanagementapriorityisfairlyclear.Withoutfinancialincentivesthatprovidethemwiththeflexibilitytodotheworkthemselvesortohireothers,ranchersasagroupareunlikelytomakeprogresstowardreducingfuelloadingacrosstheirranges.However,evenifthesesortsofincentiveswereavailable,rancherswouldalsobenefitgreatlyfromhelptodevelopdetailedfueltreatmentprescriptionsthatmakesmartuseoftheavailablepolicyoptions.Ifdoneatonetimeacrossmanyranches,theseprescriptionscouldpotentiallyprovidesomelandscapelevelprotectionthroughthedevelopmentoffirebreaksatcriticalpointsinthelandscape,whichwouldprovideadditionalbenefitaswell.

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Thoughfundingsourcestoassistwiththecostofsprinklerprotectionunitsmightlowerthebarriertocattlemen’sassociations,technicalandfinancialsupporttoaidthedevelopmentofdetailedoperatingprocedureswouldalsoprovehelpfulforanyorganizationthatownsandmanagestheSPUs.ThesesortsofguidelinesandproceduresarecriticalforensuringthattheSPUsgetusedproperly,andwell-executedplanningdocumentsoftenfallthroughthecracks.

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6 ReferencesFilmon,G.Firestorm2003ProvincialReview.February15,2004.Retrievedfrom

http://bcwildfire.ca/history/reportsandreviews/2003/firestormreport.pdf.April8,2016.

BCWildfireService.FireSmartHomeowner’sManual.2009.Retrievedfromhttp://bcwildfire.ca/prevention/docs/homeowner-firesmart.pdf.April7,2016

Merson,Joanna.HistoricalTrends,CurrentPracticesandOptionsfortheFuture.UnionofBCMunicipalities/UniversityofVictoriaResearchCo-op,March2006.Retrievedfromhttp://www.ubcm.ca/assets/Services~and~Awards/Documents/sprinkler-protection-program-report.pdf,March9,2016

OfficeoftheAuditorGeneralofBritishColumbia.JointFollow-upof2001/2002:Report1ManagingInterfaceFireRisksandFirestorm2003ProvincialReview.LibraryandArchivesCanadaCataloguinginPublicationData,May2005.Retrievedfromhttps://www.bcauditor.com/sites/default/files/publications/2005/report2/report/managing-interface-fire-risks-and-firestorm-2003-provincial-review.pdf,April8,2016.

PersonalCommunications:

Cowling,Randy.PresidentofW.A.S.P.RemoteSprinklerProtection.March10,2016.Telephone correspondence.

Ingram,Jocelyn.InsidesalesatSEIIndustries.April7,2016.Emailcorrespondence.

Poetker,Linda.DirectorofBlueCrestElectricLtd.Abbotsford.April12,2016.Telephone correspondence.

Poetker,Ray.PresidentofBlueCrestElectricLtd.Abbotsford.April12,2016.Telephonecorrespondence.

Ree,Terrance.FireServiceAdvisor.OfficeoftheFireCommissioner,NorthernRegion.March9,2016. Telephonecorrespondence.

Roach,Albert.OwnerofRoachFireServices.March9,2016.Telephonecorrespondence.

Swart,Bob.PresidentofFireStormEnterprises.April7,2016.Emailandphonecorrespondence.

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7 Appendices

7.1 RegulationsonPileBurning

InBritishColumbia,theWildfireActandRegulationspecifiesthelegalobligationswhenusingfirein,orwithinonekilometerof,forestlandorgrassland.MoredetailedregulationsforopenfirescanbefoundintheFNLRO“IndustrialandResourceManagementBurningBrochure”(2014).

Category2openfireisafirethat:

• Burnsmaterialinonepilenotexceeding2m.inheightand3m.inwidth;or,• Burnsmaterialconcurrentlyin2pileseachnotexceeding2m.inheightand3metresin

width;or• Burnsstubbleorgrassoveranareathatdoesnotexceed0.2ha,• Isnotacampfire.

AburnregistrationisnumberisnotrequiredforCategory2openfire.

Category3openfireisdefinedasafirethatburns:

• Materialin3ormorepiles,eachnotexceeding2minheightand3minwidth,• Materialin1ormorepileseachexceeding2minheightand3minwidth,• Oneormorewindrows,or• Stubbleorgrassoveranareaexceeding0.2hectares.

Category3openburnsrequireaburnregistrationnumber,obtainedbyphoningtheMinistry(1-888-797-1717).AnyonethatundertakesburningofaCategory3openfiremustcomplywiththeEnvironmentalManagementActandOpenBurningSmokeControlRegulation(OBSCR).Thisrequiresindividualstochecklocalventingconditionspriortoignitionandtoensurethatnoairqualityburningbansareinplace.Moredetails:www.env.gov.bc.ca/air/airregs.html.

TheOBSCRprohibitsburningwithin150mofanoccupiedstructure(ifforcedairtechnologyisused,or500mwithout),andwithin500mofaschoolgrounds,hospitalsandcontinuingcarefacilities(ifforcedairisused,otherwise2kmifnot).

Openfiresforrangeimprovementareconsidered‘resourcemanagementopenfires’(seeabove)undertheWildfireAct.

Aresourcemanagementopenfireis:

• Burningunpiledslashoveranareaofanysize• Isnotacampfire,Category2or3openfire,andislit,fuelledorusedforsilviculture

treatment,foresthealthmanagement,wildlifehabitatenhancement,ecologicalrestorationorrangeimprovement.

Category3andresourcemanagementopenfirescanonlybelitandfuelledif:

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• Therearenootherrestrictionsinplacefordoingso;• Doingsois,andwillcontinuetobe,safe;• Thepersonsubmitsaburnplantoanofficialandreceivestheofficial’sapprovaltoitin

writing;• Thepersonobtainsaburnregistrationnumberforthefire;• Thepersontakesallthenecessaryprecautionstoensurethefireiscontainedintheburn

area.

Itislargelyuptothecontractortoensurecompliancewithallregulations;however,theprescriptionwritercanplacecertainrestrictionsonthemtosafeguardsomeaspectsoftheburn.Forexample,maximumpilesizecanbewrittenintotheprescription.

7.2 ConsequencesofviolatingcuttingpermitsorWildfireActprovisions

AdministrativePenalties(FRPAAdministrativeOrdersandRemediesRegulation):

Part3,Division2,Section13-Unauthorizedforestorrangeactivities:

Section13(2):

• Themaximumamountthattheministermaylevyagainstapersonundersection71(2)ofFRPAforcontraventionofsection52(1)or(3)isthegreatestofthefollowingamounts:

o Anamountequaltotheproductof§ Thevolume(inm3)oftheCrowntimbersubjecttocontravention,and§ $200perm3

o Anamountequaltotheproductof§ Thearea,expressedinhectares,thatcontainedthetimbersubjectto

thecontravention,and§ $100,000perHa

o Anamountequaltothesumof§ Thestumpageandbonusbidthatintheopinionoftheministerwould

havebeenpayableifthevolumeoftimbersubjecttothecontraventionhadbeensoldunderaBCtimbersalesagreementatthetimeofcontravention

§ Twicethemarketvalueoflogsandspecialforestproductsthatintheopinionoftheministerwere,orcouldhavebeen,producedfromthetimberthatwassubjecttothecontravention

§ Thecoststhathavebeenorwillbeincurredbythegovernmentinre-establishingafreegrowingstandonthearea,and

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§ Thecoststhatwereincurredbythegovernmentforsilviculturetreatmentstotheareathatwererenderedineffectivebecauseofthecontravention

TheWildfireActputstheonusonthepersonmanagingandthosepeopleinvolvedintheburningtreatment.Thisrequiresthattheseindividualsdetermineifburningisasafedecisiononthatdayandtimeandthatreasonableprecautionsaretakentoensurethatthefireiscontainedatalltimes.TheWildfireActappliesonbothCrownandprivatelandinBC.

Herearesomeguidelinestakenfrom“IndustrialandResourceManagementBurningBrochure”(2014):

• CheckwithFLNROforbansorrestrictionsonopenburning.Theseareputintoplacewhentheforestisdryandthedangeroffireincreases.ChecktheMinistrywebsite:www.BCwildfire.caorphoneFireInformationlineat1-888-336-7378.

• Checktheforecastandwindconditions.Ifthewindisstrongenoughtocarrysparkstoothercombustiblematerial,donotburn.

• WhenconductingaResourceManagementBurnonemustensurethatallobligationsspecifiedintheBurnPlanaremet,includingresourcesrequiredonignitionandintheeventofanescape.

Underthelaw,youmustwatchthefiretopreventescape.Ifanescapeoccurs,thepersonresponsibleforthefiremustbeequippedwithatleastonefirefightinghandtooltocontrolandextinguishthefire.Ifthefiregetsoutofcontrol,trytoextinguishthefireandreporttheescapedfortoFLNROor911orfireemergencyinBC(1-800-663-5555OR*5555onacellphone).Continuefightingthefireinasafemanneruntilrelievedbyanofficial.

Finally,youmustextinguishthefirebeforetheleavingthearea.Ensurethatashesarecoldtothetouch.ACategory3openfiremustbeextinguishedinadherencetotherequirementsoftheburnregistrationnumber.

CarelessorimproperlyconductedopenburningcostsBCinexcessof3milliondollarsannually.

ContraventionoftheWildfireActisanoffence.ApersonwhocontravenestheWildfireActmaybeliableforanadministrativepenalty,afineuponconviction,and/orfirefightingandrehabilitationcostsasspecifiedintheWildfireAct.TheWildfireActappliesonbothprivateandCrownlandthroughoutBC.

Offences/Penalties(WildfireAct,S.43):

• Intentionally/recklesslycausingdamagetocrownforestlandorgrasslandincontraventionofSection6(1)–liableonconvictiontofineupto$1millionand/orimprisonmentupto3years

• Startingfirewithin1kmofforestlandorgrasslandwithoutprescription-liableonconvictiontofineupto$500,000and/orupto2yearsimprisonment

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• Failuretoabatefirehazardinprescribedperiodoftimetoprescribedextent–liableonconvictionforfineupto$100,000and/orupto1yearimprisonment

• Failuretoreportfire/takeappropriateactionstoextinguishfire–liableonconvictionforfineupto$5,000and/orimprisonmentupto6months

AdministrativePenaltiesandcostrecovery(WildfireActS.27):

IfMinisterdeterminescontraventionhasoccurred,theministermay:

• Levyanadministrativepenaltyagainstthepersoninanamountnotexceedingtheprescribedamount,

• Determinetheamountofthegovernment’scostoffirecontrolundersection9forafirethatresulted,directlyorindirectly,fromthecontravention

• Maydeterminetheamountthatisequaltothedollarvalueofanyo Crowntimber,o Otherforestlandresources,o Grasslandresources,ando Otherproperty.

Ofthegovernmentdamagedordestroyedasaresult,indirectlyordirectly,ofthecontravention.

• Maydeterminethecostso Thathavebeenorwillbeincurredbythegovernmentinre-establishingafree

growingstandasadirectorindirectresultofthecontravention,ando Thathavebeenincurredbythegovernmentforsilviculturetreatmentsthatwere

renderedineffectiveasadirectorindirectresultofthecontravention• Mayrequirethepersontopaytheamountsdeterminedandthecostsdetermined(see

above),subjecttoprescribedlimits,ifany

RemediationOrders(WildfireAct,S.28)

IftheMinisterdeterminesthatapersonhascontravenedaprovisionofthisActortheregulations,theMinistermayorderthepersontodowork,attheperson’sownexpensethatisreasonablynecessarytoremedythecontraventionandtorepairanydamagecausedbythecontravention

Liabilityofemployers,directorsandofficers(WildfireAct,S.30)

• Ifaperson’scontractor,employeeoragentcontravenesaprovisionofthisActortheregulationsinthecourseofcarryingoutthecontract,employmentoragency,thepersonalsocontravenestheprovision

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• IfacorporationcontravenesaprovisionofthisActortheregulations,adirectororofficerofthecorporationwhoauthorized,permittedoracquiescedinthecontraventionalsocontravenestheprovision.

7.3 Additionalsprinklerkitspecifications:

Table2.Estimateofsprinklerunitcosts(Swart,2016)

No. COMPONENT PRICEEst.($)

Quantityfor1Property

CostperProperty

($)

CostperTrailer(3Properties)

($)1 sprinkler 175 10 1750 52502 hose3/4"x50' 60 5 300 9003 hose3/4"x30' 40 5 200 6004 waterthief 35 10 350 10505 gatedwye3/4" 15 4 60 1806 couplings3/4" 15 4 60 1807 conduitclamps3/8" 5 16 80 2408 3000gal.waterbladder 3500 1 3500 105009 pump 4900 2 9800 2940010 relayhose11/2"x100' 165 42 6930 2079011 3-waywye 75 1 75 22512 trailer 2150 - - 2150 TOTAL - $23,105 $71,465Table3.Sprinklercomponentspecifications(Swart,2016)

No. COMPONENTSPECIFICATIONS1 1.0"sprinklerbrassimpact,w/dualsteelstepspike,¾”GHT*2 3/4"x50'synthetichose(300psi)w/GHTcouplings3 3/4"x30'synthetichose(300psi)w/GHTcouplings4 1-1/2"NPSH*waterthief,QC*w/¾”GHTshutoff5 3/4"gatedwyeGHTcouplings6 3/4"doublefemaleGHTcouplings7 3/8”conduitclamps8 3000gallonUSbladderw/couplingstoconnectpumptobottom9 Mark3firepumps10 1-1/2”x100’forestryhoseweepingQC11 1-1/2"NPSHthreewaygatedwye,QC12 Enclosedutilitytrailerforcomponentstorageandtransport=averagepriceof10used

trailers

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*Threaddefinition:NPSH(NationalPipeStraightHose),GHT(GardenhoseThread),QC(forestryquarterturn/quickcoupling)Table4.Examplesofstandbygeneratorunitprices,comparingKohler,Briggs&Stratton,andCumminsbrands.

StandbyGenerator Cost(CAD$)

Output(kW) Kohler Briggs&Stratton Cummins

10-12 4014 3270 -13-20 4161 4999 484121-25 13533 11026 12048

*Thesearebaseprices,notincludingtaxes,installation,andtransferswitches(totransferpowerfromthegeneratorinsteadoftheutilitysource,~$500)

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